Basic Education Sector Analysis Report

BASIC EDUCATION SECTOR
ANALYSIS REPORT
- KENYA -
AUGUST 2012
JAPAN INTERNATIONAL COOPERATION AGENCY (JICA)

INTERNATIONAL DEVELOPMENT CENTER OF JAPAN INC. (IDCJ)
HM
JR
12-068
BASIC EDUCATION SECTOR
ANALYSIS REPORT
- KENYA -
AUGUST 2012
JAPAN INTERNATIONAL COOPERATION AGENCY (JICA)

INTERNATIONAL DEVELOPMENT CENTER OF JAPAN INC. (IDCJ)
(Source: Kenya National Bureau of Statistics (2010) 2009 Kenya Population and Housing Census. Volume I
C. Population Distribution by Age, Sex and Administrative Units).
Map of Kenya
Abbreviations
ACE: Adult and Continuing Education

AfDB: African Development Bank
ASAL: Arid and Semi-arid Land
AUSAID: Australian Agency for International Development
BOG: Board of Governors
BOM: Board of Management
CAT: Competence Assessment Tests
CBE: Curriculum Based Establishment
CDF: Constituency Development Fund
CEB: County Education Board
CEMASTEA: Center for Mathematics, Science and Technology in East Africa
CFS: Child Friendly Schools
CIDA: Canadian International Development Agency
CSR: Country Status Report
DEB: District Education Board
DEO: District Education Office
DFID: Department for International Development (UK aid agency)
DGE: Director General of Education
EAQEL: East Africa Quality Education Learning
EC: European Commission
ECDE: Early Childhood Development and Education
EDCG: Education Development Partners Coordination Group
EFA: Education for All
EMACK: Education for Marginalized Children in Kenya
EMIS: Education Management Information System
FDSE: Free Day Secondary Education
FPE: Free Primary Education
FTI: Fast Track Initiative
GDP: Gross Domestic Product
GER: Gross Enrollment Rate
GNI (PPP): Gross National Income (Purchasing Power Parity)
GPA: General Purpose Account
GPI: Gender Parity Index
HIV/AIDS: Human Immunodeficiency Virus/Acquired Immune Deficiency Syndrome
HOD: Head of Department
ICR: Implementation Completion Report
ICT: Information Communication Technology
IDCJ: International Development Center of Japan Inc.
INSET: In-service Education and Training
i
JFA: Joint Financing Agreement
JICA: Japan International Cooperation Agency
KANU: Kenya African National Union
KCPE: Kenya Certificate of Primary Education
KCSE: Kenya Certificate of Secondary Education
KEMI: Kenya Institute of Management Institute
KESI: Kenya Education Staff Institute
KESSP: Kenya Education Sector Support Programme
KICD: Kenya Institute of Curriculum Development
KIE: Kenya Institute of Education
KISE: Kenya Institute of Special Education
KJSE: Kenya Junior Secondary Examination
KNEC: Kenya National Examination Council
KNUT: Kenya National Union of Teachers
LATF: Local Authorities Transfer Fund
MDG: Millennium Development Goals
MOE: Ministry of Education
MOHEST: Ministry of Higher Education Science and Technology
MTEF: Medium Term Expenditure Framework
NARC: National Rainbow Coalition
NEB: National Education Board
NER: Net Enrollment Rate
NFE: Non-Formal Education
NGO: Non Government Organization
ODM: Orange Democratic Movement
PCR: Pupil Classroom Ratio
PDE: Provincial Director of Education
PEO: Provincial Education Office
PISA: Programme for International Student Assessment
PNU: Party of National Unity
PRESET: Pre-service Education and Training
PS: Primary Secretary
PTA: Parent Teacher Association
PTR: Pupil Teacher Ratio
PTTC: Primary Teacher Training College
QASO: Quality Assurance and Standard Officer
SACMEQ: The Southern and Eastern Africa Consortium for Monitoring Educational Quality
SAGA: Semi-Autonomous Government Agency
SbTD: Schools-based Teacher Development
SCEB: Sub-County Education Board
SCEO: Sub-County Education Office
ii
SEP: School Empowerment Programme
SIDA: Swedish International Development Cooperation Agency
SIMBA: Schools’ Instructional Materials and Books Account
SMASE: Strengthening of Mathematics and Science in Primary Education
SMASSE: Strengthening of Mathematics and Science in Secondary Education
SMC: School Management Committees
SPRED: Strengthening Primary Education Development
SWAP: Sector Wide Approach
TF: Task Force
TSC: Teachers Service Commission
TTC: Teacher Training College
TVET: Technical and Vocational Education and Training
UNESCO: United Nations Educational, Scientific and Cultural Organisation
UNICEF: United Nations International Children's Emergency Fund
UPE: Universal Primary Education
USAID: United States Agency for International Development
WS: Work Shop
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Executive Summary
Chapter 1: Outline of the Study
As the target year of the Millennium Development Goals (MDGs) and Education for All (EFA)
approaches, non-traditional forms of aid modalities such as SWAPs and general budget support
are progressively tested and used in providing aid. In this context, the Japan International
Cooperation Agency (JICA) has commissioned a study to carry out a comprehensive and
in-depth analysis of the education sector in 13 countries in Sub-Saharan Africa and Latin
America 1 so that more strategic and effective programs/projects can be formulated. The
purpose of the study is twofold: 1) to gather relevant data and information, analyze them, and to
identify priorities in the education sector in each country, and 2) to propose how to improve the
quality and the methodologies of JICA’s analysis on basic education.
Chapter 2: Political and Socio-economic Situation in Kenya
In Kenya, the National Rainbow Coalition (NARC) won the election in 2002 and President
Kibeki took the reins of the government. In 2007, however, the unprecedented violence (2007
Post Election Violence) broke out and many were killed or displaced in the country. It affected
the Kenyan society and economy, including the education sector. The major socio-economic
indicators are: GNI per capita USD 1,640 (PPP, current international $) (2010), GDP growth
rate 5.6% (2010), life expectancy 56.5 (2010), and adult literacy rate 87% (2009).
Chapter 3: Educational Policies and Reforms
In Kenya, Free Primary Education (FPE) has started since 2003 and Free Day Secondary
Education (FDSE) has been implemented since 2008. In 2005, in order to achieve EFA and
MDGs, a policy framework called the Sessional Paper No.1 was planned and thus became a
basis of the current education system. In the same year, Kenya Education Sector Support
Programme (KESSP, 2005-2010) was planned and defined the priority areas with 23 investment
programs (IP). The donors including the World Bank, DFID, CIDA, etc. supported KESSP
through the pool fund.
To align with the new Constitution established in 2010 and Vision 2030 embarked in 2008, the
educational reform to achieve the new education system in new Kenya has been promoted. A
new policy framework and an education bill are being drafted. In the education reform, the
performance targets such as (1) ensure access, equity and quality across all levels of Basic
Education and training by 2020; and (2) eliminate gender and regional disparities in Basic
Education and training by 2017 are set. If they are approved by the Cabinet and the Parliament,
the new Policy Framework will be established and the next Educational Sector Programme will
be developed.
Supervisory authority of the sector is the Ministry of Education (MOE). But it is likely to be
1
The target countries are Kenya, Ethiopia, Uganda, Rwanda, Malawi, Zambia, Cameroon, Senegal, Mali,
Niger, Burkina Faso, Guatemala, and Nicaragua.
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integrated with the Ministry of Higher Education Science and Technology (MOHEST) to follow
the new Constitution. Currently, regional education administration is managed by provincial
education offices and district education offices. It will become the County education offices
which are in charge of monitoring of education activities, after the educational reform.
Chapter 4: Status and Challenges of Basic Education Sector Development
[Access] Following the FPE policy (2003), the enrollment rate has steadily increased up until
2011. In 2011, the gross enrollment rate (GER) was 115%, and the net enrollment rate (NER)
was 96.7%, both achieving the highest in the past. In the pre-primary education as well, it has
grown in the past two decades, and reached 59.3% in GER and 42.1% in NER in 2007.
Secondary education has increased after FDSE (2008), from 36.8% in the previous year to
42.5%. In 2011, GER was 48.8% and NER was 32.7%.
[Internal Efficiency] Although cohort survival rate decreased from 91.6% in 2006 to 73.8% in
2007, this is relatively higher than the other African target countries in this study. Repetition rate
and dropout rate are the highest in the first (repetition rate 6.5 %, dropout rate 9.12%) and the
second (repetition rate 5.84 %, dropout rate 5.88%) grades. Both dropout rate (3.5%, 2007) and
repetition rate (9.8%, 2003) achieved the EFA-FTI indicative framework average. Transition
rate increased from 46.5% in 2001 to 73.3% in 2011, but in most of the years, boys exceeded
girls and thus there is a disparity between boys and girls.
[Equity] Boys have better figures in GER in primary education than girls in most of the last 10
years. After 2003, especially, the difference has been bigger. In secondary education as well,
GER has drastically increased for boys but the disparity with girls has become larger. The
Gender Parity Index also differs among provinces, with the lowest 0.63 (2007) in the
Northeastern Province. The Northeastern and Nairobi Provinces are dramatically low in GER
among all provinces in both primary and secondary education.
[Learning Outcomes] The primary completion rate has shifted between 70 to 85% in the past 5
(five) years (74.6% in 2011). The secondary completion rate was relatively higher than that of
primary education, 91.8% (2007). Completion rates of girls were lower than those of boys in
both levels. In the Southern and Eastern Africa Consortium for Monitoring Educational Quality
(SAQMEQ) assessment, Kenya ranked in the top level, with reading ranked the fourth of 15
countries and the result of math ranked the second. However, the National Examination results
have remained stagnant and an assessment of reading of English and Kiswahili and numeracy
(2011) revealed that many children in Kenya have problems in reading and basic arithmetic
calculation.
[Learning Environment] The national average of pupil-classroom ratio (PCR) of primary

schools in Kenya was 35.5 in 2007, achieving the national standard of 40. The PCR of the
Nairobi Province was the highest (45.6, in 2007).
[Textbook Distribution System] The government of Kenya has constructed a system to

purchase and distribute primary school textbooks with donor support. It is decentralized to
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school management committees. Textbook pupil ratio of primary standard 1-8 ranged from 1:2
to1:4. In June 2009, a fraud in the MOE was found in the textbook component of KESSP and a
large amount of fund was lost.
[Curriculum] Curriculum is developed by the Kenya Institute of Education based on the policy
designed by MOE. The current curriculum was revised in 2003. The on-going education reform
aims to convert it to more skill and competency based curriculum.
[Teaching Staff] The number of teachers in Kenya has not increased since 2000 till 2011. It is
even decreased if we compare it with the figure of 2003, the FPE inaugural year. Pupil teacher
ratio (PTR) for primary education was 42.9 in 2007, which did not reach the national standard
(40). There is also a regional difference in PTR. In pre-service and in-service trainings
(PRESET and INSET), there are issues of lack of capacity in lecturers, lack of comprehensive
framework, and insufficient coordination between PRESET and INSET. In teacher management,
since the Teachers Service Commission (TSC) was defined as a constitutional commission in
2010, the roles of the TSC and the MOE have become ambiguous. It is said “power struggle” in
some media.
Chapter 5: Public Finance and Administration in the Education Sector
In the education sector in Kenya, MOE is responsible for the overall administration and sector
coordination. Other specific responsibilities have been gradually delegated to 8 (eight)
provinces and 290 districts. Responsibilities on management and supervision of educational
services are delegated to province education offices, whereas development of district education
plan and education service delivery are delegated to district education offices.
Regarding the management capacity of MOE, due to the fraud in KESSP, the budget
implementation capacity, governance, and efficiency of the education sector are low. In addition,
although the current education reform aligns with the new Constitution, the submission of the
TF report was delayed and the next phase KESSP has not come out yet. Thus, commitment of
the MOE cannot be rated well. Besides, in the decentralization system, the fact that decision
making is still concentrated in the central level undermines the independence, decision and
self-responsibility of the provincial, district and institutional levels. In the KESSP assessment
called Implementation Completion and Results Report, many indicators including access,
primary completion rate, and sector management were rated “unsatisfactory.” It may be
concluded that the capacity is not sufficient since the MOE does not attend the donor
coordination meetings and the truth of the fraud is not disclosed to citizens and donors.
Financial distribution to the education sector has been relatively high, with the budget allocation
being 6.2% of GDP (2009/2010) and the share of the education sector as a percentage of the
government expenditure being 26.7% (2009/10). However, almost 80% of the education
recurrent expenditure is allocated to teacher salary and the share of primary education is as low
as 5.4%, whereas higher education is 26.5% and secondary education is 9.4%.
There are two kinds of block grant: FPE and FDSE. The calculated capitation amount of
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Ksh1,020 for primary students and Ksh10,265 for secondary students, are directly transferred to
school accounts. Apart from the above FPE/FDSE grants, national and provincial secondary
schools receive additional subsidy for maintenance, which creates inequality among secondary
schools. Besides, a part of funds called Local Authorities Transfer Fund (LATF) and
Constituency Development Fund (CDF), which are managed by local authorities and members
of parliament, are used for classroom construction and scholarship. It is pointed out, however,
that the way of management and reporting of these funds lacks transparency. In future, as the
demand for teachers will increase by 6 to 24 % annually (estimate for 2012/13 to 2015/16), the
budget required for teacher salary will be Ksh 18.1 billion (2016/17).
Chapter 6: Trends in Donor Assistance
The Education Development Partners Coordination Group (EDCG), a framework of donor

coordination in Kenya’s education sector, holds regular meetings that pool-fund donors of
KESSP and donors/NGOs with project-based assistance participate in. However, the MOE has
not attended the EDCG since July 2011. Following the freeze of the fund as a result of the fraud
of KESSP, it is not yet clear if a new pool-fund will be established, or donors will fund the next
phase KESSP.
Chapter 7: Results of Analysis
From a comparison with basic education sectors in other 10 countries of Sub-Saharan Africa
and with the indicators in the EFA-FTI indicative framework, the situation of access, learning
environment and internal efficiency of Kenya’s education sector are relatively good. However,
in terms of policies, management capacities and disparities or mechanisms that are not apparent
in the indicators, there are many issues.
Firstly, despite that the educational reform taking place is likely to be reflected in the next phase
education sector program, information was limited to the development partners during the
process of the reform and some issues written in the TF report and countermeasures were not
matched. Besides, the estimated amount of necessary budget has not been validated financially.
The roles and responsibilities of the County education office by the MOE and TSC are not clear.
Secondly, as for the issue of equity, gender and regional disparities are huge especially between
ASAL and other regions. Though the MOE has implemented various countermeasures, there are
still unreachable children. Some factors can be drawn: high levels of poverty; early marriage of
girls, lack of a clear institutional framework, challenges of insecurity and inadequate learning
institutions, lack of teachers from nomadic background, English as a instruction language, a
large number of pupil-teacher ratio, and difficulty of teacher deployment due to the conflict
among ethnic groups.
Thirdly, as for the stagnancy of learning achievement of students in Kenya, the decrease in
number of primary teachers, low awareness of teachers, high absenteeism of teachers, and issues
of PRESET and INSET can be factors behind. On the other hand, the current high-tensed
examination system especially in secondary education, which is also related to the assessment
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indicators of education officials in provinces and districts, would make it difficult to realize the
shift to a competency based curriculum.
Fourthly, as for education finance, the FPE/FDSE block grant system, the teacher salary
mechanism based on qualification rather than deployment, and the large amount of subsidy
distributed to national secondary schools pressure the recurrent budget of the government and
consequently lower the share of budget for primary education. It is required to analyze more
efficient management in finance.
In the priorities given by the government of Kenya in the new Policy Framework, access, equity,
quality and relevance, education for marginalized groups, curriculum and assessment,
governance and management, financing are listed as priority strategies. However, more
comprehensive action plan is necessary since there are issues: implementation does not come
along with policies; no review is made in the current system to tackle the hindrance factors; and
the priorities are too exhaustive and some are not feasible.
The study has given rise to some points of considerations and has identified some of the
challenges in conducting a sectoral study in the education sector: 1) it is difficult to obtain the
updated education statistics, 2) some statistical data is inaccurate, 3) it is difficult to grasp the
progress in the middle of the education reform, 4) too many items to study and too little time to
discuss, and 5) the amount of available information varies depending on specific topics and
indicators.
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BASIC EDUCATION SECTOR ANALYSIS REPORT
- KENYA -
Table of Contents
Map
Abbreviations
Executive Summary
CHAPTER 1: OUTLINE OF THE STUDY......................................................................................... 1
1.1 BACKGROUND ........................................................................................................................... 1

1.2 OBJECTIVES OF THE STUDY ........................................................................................................ 1
1.3 BASIC APPROACHES OF THE STUDY ............................................................................................ 1
1.4 TARGET AREAS/COUNTRIES ....................................................................................................... 2
1.5 MAJOR STEPS AND SCHEDULE .................................................................................................... 2
1.6 STUDY TEAM............................................................................................................................. 3
CHAPTER 2: POLITICAL AND SOCIO-ECONOMIC SITUATION IN KENYA ........................... 4
2.1 POLITICAL SITUATION ................................................................................................................ 4

2.2 SOCIO-ECONOMIC SITUATION ..................................................................................................... 4
CHAPTER 3: EDUCATIONAL POLICIES AND REFORMS ........................................................... 6
3.1 NEW CONSTITUTION AND NATIONAL DEVELOPMENT PLANS ........................................................ 6

3.1.1 New Constitution ............................................................................................................. 6
3.1.2 Vision 2030 ..................................................................................................................... 6
3.2 RECENT TREND OF EDUCATIONAL REFORM ................................................................................ 6
3.3 EDUCATION SYSTEM .................................................................................................................. 7
3.4 EDUCATION POLICY ................................................................................................................... 8
3.5 KENYA EDUCATION SECTOR SUPPORT PROGRAMME (KESSP) ..................................................... 9
3.6 EDUCATION ACT ...................................................................................................................... 10
3.7 SUPERVISORY AUTHORITY ....................................................................................................... 10
CHAPTER 4: STATUS AND CHALLENGES OF BASIC EDUCATION SECTOR

DEVELOPMENT............................................................................................................................... 12
4.1 ACCESS ................................................................................................................................... 12

4.1.1 School Age Population ................................................................................................... 12
4.1.2 Number of Schools and Enrollment ................................................................................ 12
4.1.3 Enrollment Trend of Pre-primary Education ................................................................... 15
4.1.4 Enrollment Trend of Primary Education ......................................................................... 15
4.1.5 Enrollment Trend of Secondary Education ..................................................................... 16
4.1.6 Literacy Education ......................................................................................................... 17
4.2 INTERNAL EFFICIENCY (QUANTITATIVE INTERNAL EFFICIENCY) ................................................ 17
4.3 EQUITY ................................................................................................................................... 20
4.3.1 Comparative Analysis of Access by Group ..................................................................... 20
4.3.2 Trend of Special Education for Children with Special Needs and Inclusive Education ..... 22
4.4 QUALITY OF EDUCATION .......................................................................................................... 23
4.4.1 Situation of Learning Outcome ...................................................................................... 23
4.4.2 Learning Environment ................................................................................................... 25
4.4.3 Procurement and Distribution of Teaching Material ........................................................ 26
4.4.4 Definition of Academic Ability ...................................................................................... 27
4.4.5 Quality Assurance System of Education ......................................................................... 28
4.4.6 Curriculum .................................................................................................................... 30
4.4.7 Languages of Instruction ................................................................................................ 32
4.5 TEACHERS ............................................................................................................................... 32
4.5.1 Number of Teachers ....................................................................................................... 32
4.5.2 Teacher Qualification and Placement.............................................................................. 33
4.5.3 Working Conditions for Teachers ................................................................................... 35
4.5.4 Teacher Education System ............................................................................................. 36
4.5.5 Teacher Recruitment / Management ............................................................................... 38
CHAPTER 5: PUBLIC FINANCE AND ADMINISTRATION IN THE EDUCATION SECTOR .. 40
5.1 PUBLIC ADMINISTRATION ........................................................................................................ 40

5.1.1 Decentralization of the Education Sector ........................................................................ 40
5.1.2 Management Capacity of the Ministry of Education ....................................................... 41
5.2 EDUCATIONAL FINANCE ........................................................................................................... 44
5.2.1 Budget of Education Sector ............................................................................................ 44
5.2.2 Flow and Administration of Funds Provided by Donors .................................................. 47
5.2.3 Management System of Education Budget / Public Expenditure ..................................... 48
5.2.4 Distribution of Grants .................................................................................................... 48
5.2.5 Private Education Expenditure ....................................................................................... 49
5.2.6 Unit Cost Analysis ......................................................................................................... 50
5.2.7 Projection of Midterm Demand and Cost for Teachers .................................................... 50
CHAPTER 6: TRENDS IN DONOR ASSISTANCE ......................................................................... 52
6.1 STRUCTURE OF DONOR COORDINATION .................................................................................... 52

6.2 TRENDS OF COOPERATION BY EACH DONOR ............................................................................. 52
CHAPTER 7: RESULTS OF ANALYSIS .......................................................................................... 55
7.1 TOP PRIORITIES IN THE BASIC EDUCATION SECTOR ................................................................... 55

7.2 FACTOR ANALYSIS OF TOP PRIORITIES ...................................................................................... 57
7.3 PRIORITIES OF KENYA’S POLICY ............................................................................................... 60
7.4 CHALLENGES AND NECESSARY CONSIDERATIONS ..................................................................... 61
Annex：
Annex I Survey Items and Indicators
Annex II Itinerary of the Field Survey
Annex III Collected Data
Annex IV References
CHAPTER 1: OUTLINE OF THE STUDY
1.1 Background
To attain the goals of Education for All (EFA) and Millennium Development Goals (MDGs) by
the 2015 deadline, the developing countries have been engaged in quantitative and qualitative
improvement in basic education in collaboration with the cooperating partners (CPs). For some
developing countries, reaching all of these goals by the target year still remains challenging. In
the area of basic education improvement, sector-wide approaches (SWAps) have been more
emphasized through direct budget support rather than through project-type interventions. There
have been growing concerns in the limited capacity of the developing countries in planning,
budgeting, implementation, and monitoring and evaluation, which might negatively affect aid
effectiveness and transparency.
Japan International Cooperation Agency (JICA) has provided various project-type and/or
program-type interventions, including technical assistance, classroom construction, education
equipment procurement etc., in line with the education sector program of the developing
countries. In order to implement more strategic and effective cooperation in this challenging
environment, JICA has decided to conduct the Basic Education Sub-Sector Study (hereinafter,
the Study) and to understand the whole picture of the basic education development to formulate
more comprehensive and effective programs/projects based on the deepened analysis of the
administrative, financial and socio-economic contexts as well as of the educational indicators
and statistics.
1.2 Objectives of the Study
The Study, through data collection and analysis of the 13 target countries chosen from the Sub
Sahara Africa and the Central America, and comprehensive and comparative analysis, aimed to
(1) collect and analyze general information in the basic education sub-sector and identify
priority areas for development in target countries and (2) make recommendations for JICA to
design and carry out any future sector and/or sub-sector study.
1.3 Basic Approaches of the Study
The Study was conducted with the following basic approaches:

(1) Information gathering and analysis were to be done from the viewpoints of equity;
administrative and financial capacity; and internal efficiency, in addition to quality and
access of the basic education. Key questions, which were identified for each target country
through the preliminary document review, were also tackled to find updated information.
(2) Problems and structural deficiencies of the basic education sector in each target country
were to be identified and priority development needs and strategies were to be listed.
(3) Recommendations for JICA to improve future sector study through comprehensive and
comparative analysis of the country analyses results.
1
1.4 Target Areas/Countries
The following 13 countries were chosen as the target countries, where there were on-going
programs/projects in the basic education sub-sector and program/project formulation was to be
planned in the near future.
Sub-Saharan Africa Burkina Faso, Cameroon, Ethiopia, Kenya, Malawi, Mali, Niger,
(11 countries) Rwanda, Senegal, Uganda, and Zambia
Central America Guatemala and Nicaragua
(2 countries)
The field survey in Mali was cancelled due to the coup d’état in March 2012. The basic
education sector analysis report of Mali was prepared based on the data collection and analysis
in Japan.
1.5 Major Steps and Schedule
Information collection and analysis was conducted, according to the standard research items and
indicators (Annex 1-1) listed in JICA’s “Standard Research Items and Methodology of the
Education Sector Analysis” (drafted as of October 2011). Major steps and schedule of the Study
were as follows.
February‐April 2012: Formulation of Inception Report

- Analysis of existing documents of the government agencies,
international development partners, international organizations etc.
- Preliminary information gathering in Japan and discussion with JICA
officers in charge of the target countries.
February‐May 2012: Preparation of Field Survey
- Preparation of the field survey schedule and making appointments
- Preparation of the field survey plan and strategies
- Identification of lacking data and preparation of the questionnaires
March‐June 2012: Conducting of Field Survey
- Information gathering from government agencies, international
development partners, international organization, and JICA office etc.
- School and project site visits
May‐June 2012: Drafting of Basic Education Sector Analysis Reports by Country
July 2012: Formulation of Final Report
- Comprehensive and comparative analysis of the country-wise reports
and preparation of recommendations
- Report preparation
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1.6 Study Team
Information gathering, analysis and report writing of the Study were conducted by the Study
team as listed in Table 1-1. The field survey and data analysis for Kenya was conducted by Yoko
Takimoto, a senior consultant in Recycle One, Inc.
Table 1-1：Team Members of the Study and the Countries in Charge

Position Name（Affiliation） Country in Charge
Team Leader /Comprehensive Yoko Ishida (International Malawi, Uganda, Zambia
Analysis of the Basic Education Development Center of Japan Inc.
Sector
(IDCJ))
Administrative and Financial Hiromitsu Muta (IDCJ) Guatemala, Nicaragua
Analysis
Country-wise Basic Education Naomi Takasawa (IDCJ) Cameroon, Niger
Sector Analysis 1
Country-wise Basic Education Emi Ogata (IDCJ) Senegal
Sector Analysis 2
Country-wise Basic Education Yoko Takimoto (Recycle One) Ethiopia, Kenya
Sector Analysis 3
Country-wise Basic Education Miko Maekawa (IDCJ) Rwanda
Sector Analysis 4
Country-wise Basic Education Chie Tsubone (Global Link Burkina Faso, Mali
Sector Analysis 5 Management)
Administrative Coordination/ Michiru Yabuta (IDCJ)
Assistance for Sector Analysis1
Administrative Coordination/ Mana Takasugi (IDCJ)
Assistance for Sector Analysis2
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CHAPTER 2: POLITICAL AND SOCIO-ECONOMIC SITUATION
IN KENYA
2.1 Political Situation
Kenya was ruled by a single-party, the Kenya African National Union (KANU), since its
independence. Although the multi-party system was legalized in 1992, and several political
parties were formed, KANU won the elections of 1992 and 1997. In 2002, the National
Rainbow Coalition (NARC), a coalition between some members who left KANU and
opposition parties won the election, and Mwai Kibaki of NARC was elected the country’s third
President. When President Kibaki took the reins of the government in 2002, the economy was
sluggish with the annual growth rate of 0.6% (WB 2008), but for the next four years, the
economy rode on the track of stable recovery and achieved 6.9% annual growth rate in 2007
(Cambridge Education, Mokoro & OPM, 2010) .
In 2007, President Kibaki ran for re-election from the Party of National Unity (PNU) and won
against Mr. Odinga, the leader of the main opposition party, the Orange Democratic Movement
(ODM). However, international observers pointed out that the election was flawed, saying that
tally had been manipulated by President Kibaki. An unprecedented violence (2007 Post Election
Violence) broke out and 1,200 people were killed and 500,000 people were displaced in the
country (Cambridge Education, Mokoro & OPM, 2010, Tsuda, 2010).
After the arbitration process mediated by Kofi Annan, the former UN Secretary General, in
February 2008, President Kibaki and the opposition leader Odinga reached an agreement to
form a coalition government between PNU and ODM and carry out institutional reforms,
including revision of the Constitution centered on the creation of the new post of Prime Minister
(which Odinga was appointed). The impact of the violence on the Kenyan society was
tremendous. In the education sector, many educational facilities were attacked and burned
(Cambridge Education, Mokoro & OPM, 2010, Tsuda, 2010).
2.2 Socio-economic Situation
The socioeconomic indicators of Kenya are shown in the following.
1) Country Name: Republic of Kenya

2) Area: 583,000 km2 (1.5 times larger than Japan)2
3) Population: 38.61 million (2009 Census), 35 % increase from 19993
4) Ethnic groups: Nearly 40 ethnic groups4 (Kikuyu, Luhya, Kalenjin, Luo, etc.)4
5) Languages: English (official language), Kiswahili (national language)5
6) Religions: Protestant, Catholic, Traditional religions
2
Ministry of Foreign Affairs of Japan Website “http://www.mofa.go.jp/mofaj/area/kenya/data.html”
3
Kenya National Bureau of Statistics, 2010
4
Embassy of Kenya in Japan Website ”http://www.kenyarep-jp.com/faq/faq_j_aboutkenya.html”
5
JICA Website Kenya Profile, p1. “http://www.jica.go.jp/seikatsu/pdf/Africa/Kenya-p.pdf”
4
7) Major industries: Agriculture6
8) GDP: 32,198 million US$ (2010)
9) GNI per capita $ 1,640 (PPP, current international $) (2010)7
10) GDP growth rate: 5.6% (2010)4
11) Consumer price index 180.1 (2010)4
(2005=100):
12) Currency: Kenya Shilling (Ksh)
13) Exchange rate: 1 Ksh = 0.988 JPY (as of May 2012, JICA rate)
14) Life expectancy: 56.5 (2010)4
15) Adult literacy rate: Adults 15 years old and above 87% (2009)4
16) Prevalence of HIV (adult)： 6.3% (2009)4
Kenya has 8 (eight) provinces with 290 districts.
Population and its density according to the 2009 Population Census8 are shown in Table 2-1.
Rift Valley (10 million), Eastern (5.7 million), and Nyanza (5.4 million) were the
highly-populated provinces. The percentage of the population under age 15 of North Eastern
Province was the highest (51.7%). Regarding population density, Nairobi, Western, and Nyanza
Provinces were high, and North Eastern, Coast, and Eastern Provinces were low.
Table 2-1: Population by Province (2009)

Population Population Density
Population 2009 (Million)
Province Under Age per Square Kilometer
Total Men Women 15 (%) 1999 2009
Nairobi 3.1 1.6 1.5 30.3 3079.4 4515.0
Central 4.4 2.2 2.2 36.0 281.7 333.0
Coast 3.3 1.7 1.7 42.3 30.0 40.1
Eastern 5.7 2.8 2.9 41.8 30.2 37.0
North Eastern 2.3 1.3 1.1 51.7 7.5 18.2
Nyanza 5.4 2.6 2.8 45.9 350.1 431.5
Rift Valley 10.0 5.0 5.0 45.3 38.3 54.6
Western 4.3 2.1 2.2 47.1 406.4 521.6
Total 38.6 19.2 19.4 42.9 49.3 66.4
(Source: National Coordinating Agency for Population and Development (NCAPD), 2011, Kenya
Population Data Sheet 2011
“http://www.ncapd-ke.org/index.php?option=com_docman&task=cat_view&gid=81&Itemid=73”)
6
Ministry of Foreign Affairs of Japan Website
“http://www.mofa.go.jp/mofaj/gaiko/oda/seisaku/enjyo/kenya_h.html”
7
World Bank Website, World Data Bank (obtained on May 21th, 2012)
8
National Coordinating Agency for Population and Development, 2011
5
CHAPTER 3: EDUCATIONAL POLICIES AND REFORMS
3.1 New Constitution and National Development Plans
3.1.1 New Constitution
In August 2010, Kenya established its new constitution which stated Free and Compulsory
Basic Education as a human right to every Kenyan child. 9 It also stipulated to promote
decentralization, dividing the current 8 provinces to 47 counties and to delegate authorities to
counties. Pre-primary education is included in county’s functions 10. In addition, Teachers’
Service Commission (herein after, TSC), formerly a Semi-Autonomous Government Agency
(SAGA), is prescribed to be an independent office. 11 It is also prescribed that the Cabinet shall
consist of not more than twenty-two Cabinet Secretaries,12 suggesting the need to reorganize
ministries and agencies (Constitution of Kenya, 2010).
These new provisions are the main premises of the educational reform discussed below (MOE,
2012a).
3.1.2 Vision 2030
Vision 2030 is a long-term development strategy of the government of Kenya launched in June
2008, modeled after the strategic visions of Asian emerging countries. The aim of the vision is
to be “the globally competitive and prosperous country with a high quality of life by 2030,”
driving Kenya into a middle income economy by 2030 (Ministry of Foreign Affairs of Japan
(2010) “ODA Data book by region”). Vision 2030 places a great emphasis on the link between
education and the labour market, the need to create entrepreneurial skills and competences, and
the need to strengthen partnerships with the private sector. It also sets targets for enhancing
adult literacy to 80% by 2012 (MOE, 2012a).
Since the establishment of Vision 2030, Ministry of Education (hereinafter, MOE) has started
considering to reform the education system and curriculum and to strengthen ICT. This has led
to the current educational reform (2012a).
3.2 Recent Trend of Educational Reform
In Kenya, the Task Force on the Re-alignment of the Education Sector to the New Constitution
(hereinafter, TF) was formed in 2011 to realign the education sector with the Constitution 2010
and Vision 2030 (MOE, 2012a). New education aims to “create a globally competitive quality
education, training and research for Kenya's sustainable development.”13 TF consisting of MOE
9
Article 53
10
FOURTH SCHEDULE. p177
11
Article 248
12
Article152
13
Ministry of Planning and National Development , 2008
6
and consultants supported by UNICEF, USAID developed a draft report (hereinafter, TF report)
in February 2012, and held the National Conference on Education to exchange opinions with
concerned parties in March. Based on the results of the National Conference, a new Education
Bill and a Policy Framework have been developed (as of May, 2012).14 If they are approved by
the Cabinet and the Parliament, the new Policy Framework will be established, and the next
Educational Sector Programme will be developed. Through this, the TF report will be
implemented from 2013 (interview with MOE, JICA Kenya office, and JICA experts). The main
contents of the reform described in TF report are shown in Annex 3-1.
The TF report lists the performance targets of the education sector as follows:(1) ensure access,
equity and quality across all levels of Basic Education and training by 2020; (2) eliminate
gender and regional disparities in Basic Education and training by 2017; (3) improve the quality
of education and training so that Kenya‘s measurable learning outcomes in literacy, numeracy,
scientific and communication skills are in the upper quartile on recognised international
standardized tests by 2017 (MOE, 2012a).
In order to implement the educational reform, it is estimated that the education expenditure will
be required as much as Ksh 3,400 billion/year (about 3,359 billion JPY).15 Since the current
educational expenditure is about Ksh 1,600 billion/year,16 it means three times of more fund
will be required. Regarding the funding gap, TF says that it is going to obtain the
understandings of the private sector, communities, donors, and churches, although the specific
plan is not clearly mentioned (interview with UNICEF and MOE).
3.3 Education System
The current education structure consists of 8 years of Primary education (age 6 to 13), 4 years of
Secondary education (age 14 to 17), and 4 years of Higher education (age 18 to 21 and above).
The Kenya Government adopted Free Primary Education (herein after, FPE) Policy in 2003, and
Free Day Secondary Education (herein after, FDSE) in 2008, and started to provide block grants
per pupil (WB, 2004a).
14
Kilonzo, Minister of Education, ordered to prepare the above by August, 2012.
15
Ministry of Education, 2012a. Exchange rate: 1 Ksh = 0.988 JPY (JICA rate, as of May)
16
Ministry of Education, 2012a
7
TIVET Masters Technical
Craft and
Under-
Artisan Grad Technical Doctorates
Technical TIVET
Secondary Tertiary
Schools Diploma
1 2 3 4 University
Under- Masters Doctorates
ECCD Pre- Primary Secondary Grad
Primary (Formal and NFE) Cycle
Tertiary
1 2 3 1 2 1 2 3 4 5 6 7 8 1 2 3 4 Diploma
KCPE KCSE
（Current Structure） Basic Education Higher Education

(Developed by the study team in reference to MOE, 2005)
Figure 3-1: Structure of Education and Training in Kenya
School year starts in January and ends in November. The school year is divided into 3 terms:
January to March (Term I), May to July (Term II), and September to November (Term III).
Schools are in vacation in April (4 weeks), August (4 weeks) and December (5 weeks) (MOE,
2012a).
Students are obliged to take Kenya Certificate of Primary Education (herein after, KCPE) at the
end of primary education cycle, and Kenya Certificate of Secondary Education (herein after,
KCSE) at the end of secondary education cycle. Students who achieve a certain level in these
exams are admitted to go on to the next education stage. The examinations are developed,
analyzed, and aggregated by Kenya National Educations Council (herein after, KNEC) (MOE,
2005).
On the other hand, TF proposes the structure of 2 years of pre-primary education, 6 years of
primary education, 6 years of secondary education (3 years in junior and 3 years in senior), and
3 years of higher education. TF points out the weaknesses in the current structure and the
relevance of the reform such as the failure to incorporate the pre-school cycle as part of the
education structure, closed opportunities for learners to pursue further education towards
lifelong learning, unhealthy competition caused by overemphasis on examinations-based
certification at the end of each education cycle, and lack of harmony with the educational
structures of the other East African countries17 (MOE, 2012a).
3.4 Education Policy
In 2002, the New NARC Administration of President Kibaki announced the Economic
Recovery Strategy, and declared FPE and Compulsory Education, which were implemented in
17
However, there were many opposing opinions regarding the proposed structural reform in the National
Conference of Education. The structure is not reflected in the newly proposed education bills and the
policy framework.
8
the school year of 2003 (Ministry of Planning and National Development, 2003, WB, 2004a).
In 2003, the Ministry of Education, Science and Technology (MOEST) started to design the
policy framework to cover EFA and MDGs, and the Sessional Paper No1 was developed
(approved by the Parliament in 2005). The Sessional Paper is the policy basis for the
development of the important plans of sub-sectors. It states that FPE is essential to achieve
Universal Primary Education (UPE), and long-term objective of the government is to provide
quality of 2 years of pre-primary education, 8 years of primary education, and 4 years of
secondary/technical education (WB, 2004a).
As of May 2012, a draft of the new framework aligning with the Constitution 2010 and Vision
2030 are being developed. In the new policy framework, to comply with the new Constitution
and for the human right of every Kenyan child to receive education services, the following
strategies are stated.
(1) Enhancing Access, Equity, Quality and Relevance

(2) Education for Marginalised, Hard-to-reach and Vulnerable Groups
(3) Curriculum and Assessment Reform and Establishment of National Standards and Quality
Assurance Commission
(4) Information and Communication Technology (ICT), Open and Distance Learning
(5) Improvement of Governance
(6) Planning, Implementation Monitoring and Evaluation
(7) Financing and Resource Mobilization
(8) Public-private Partnership
This new framework highlights the needs to take necessary measures in order to promote the
enforcement of the new Constitution and to provide education that Vision 2030 aims at. In
addition, performance targets which TF proposed in the education reform are adopted, the
contents proposed by TF are partly stipulated, and the possibility of integration of the MOE and
Ministry of Higher Education Science and Technology (herein after, MOHEST) are implied.
Performance targets of the new educational policy framework are shown in Annex 3-2.
Examples of the policies stated are: to improve access, quality and equity; to review and
implement policies for children of the hard-to-reach groups; to adopt competency based
curriculum and assessment; to establish the Education Standards and Quality Assurance
Commission (ESQAC); to develop the National Qualification Framework; and to establish the
County Education Boards and management committees (MOE, 2012b).
3.5 Kenya Education Sector Support Programme (KESSP)
In July 2005, the MOE established the Kenya Education Sector Support Programme (herein
after, KESSP) (2005-10). Educational officials of the government, community organizations,
and development partners contributed to the design of the programme. KESSP proposed the
9
following five priority areas: (1) Access to basic education, (2) Strengthening education
management, (3) Ensuring quality primary education, (4) Strengthening and improvement of
secondary education, and (5) Investment in Technical and Vocational Education and Training
(TVET)/University education. It also stipulated twenty three investment programmes focusing
on the priority areas, operation of the programmes, the annual Joint Review of the Education
Sector (JRES), and the position of the Budget Workshop incorporated in the budget process of
the government (WB, 2004a and 2006).
Although KESSP was developed by the government, it is not mapped directly in the budget of
the government. Most of the educational current expenditures are not included in it, such as
teacher salaries (WB, 2004a).
According to the KESSP’s implementation completion report issued by the World Bank in 2011,
due to a fraud in the KESSP pooled fund detected in 2009, the outcome was rated
“unsatisfactory.” The risk to development outcome was rated “high” and the borrower
(government of Kenya)’s performance was rated “unsatisfactory” (WB, 2011). Details are
described in Chapter 6 in this report.
As of 2012, KESSP-II draft is being developed but not officially published, since the education
reform is in progress (as of May, 2012).
3.6 Education Act
In 1980, the Education Act Cap 211 was established in Kenya, and related clauses were added in
2009. As of May 2012, the Education Bill to align with the new Constitution is being drafted.
The Education Bill of 2012 specifies that (1) pre-primary education is included in the definition
of the basic education, (2) establishment of the National Education Board as a new consultative
body and its functions (3) establishment of the County Education Board and its functions, (4)
establishment of the Board of Management and its functions, (5) establishment of the Education
Standards and Quality Assurance Council and its functions, and (6) establishment of the
education and training fund, etc. (EDUCATION BILL, 2012, DRAFT 2).
3.7 Supervisory Authority
The MOE used to be in charge of the higher education, science and technology sub-sector as
well. Since 2008, the MOHEST, and the Ministry of Youth Affairs and Sports have been
separated from the ministry. However, MOHEST is likely to be integrated in the MOE again as
the new Constitution stipulates reduction of the Cabinet Secretaries from forty to twenty-two
(MOE, 2012a, 2012b).
Currently the MOE is in charge of pre-primary, basic, secondary and non-formal education (WB,
2004a). The mission of the MOE is to provide, promote, and coordinate quality education,
training and research (MOE, 2012a).
10
The organization of the MOE consists of the Minister, Permanent Secretary (herein after, PS),
and six departments. The Basic Education Department and Secondary Education Department
have the function to provide basic education, and the Quality Assurance and Standards
Department has the function to assure quality of education (MOE, 2012a).
Minister
TSC
Assistant Minister Assistant Minister
Permanent Secretary
SAGA Administration
Education Secretary
Dir. of Policy
Dir. of Quality Dir. of Dir. of Dir. of
Dir. of Partnership &
Assurance and Secondary Adult Education Field and Other
Basic Education E.A. Community
Standards Education Services (INSET)
Affairs
Note: Dir. = Directorate

(Developed by the study team in reference to JICA Kenya Office (original source: MOE))
Figure 3-2: Ministry of Education Organization Chart (related agencies only)
The semi-autonomous government agencies (SAGA) under the MOE includes the Kenya
Institute of Education (KIE) whose function is to develop curriculum and textbooks, the Kenya
National Examination Council (KNEC) in charge of National Assessment, the Kenya Institute
of Management Institute (KEMI) in charge of capacity development of education managers, the
Kenya Institute of Special Education (KISE) in charge of training of teachers for special needs,
and the Center for Mathematics, Science and Technology in East Africa (CEMASTEA) (MOE,
2012a). They are under the control of the PS of the MOE (interview with the Planning Division
of MOE).
As previously noted, the Teachers Service Commission (TSC) is now an independent office to
recruit, hire, assign, and transfer teachers, but the MOE handles the Parliament matters.
11
CHAPTER 4: STATUS AND CHALLENGES OF BASIC
EDUCATION SECTOR DEVELOPMENT
4.1 Access
4.1.1 School Age Population
As shown in Table 4-1, the population from the age 4 to 17 which is the school age of
pre-primary, primary, and secondary education was approximately 12.985 million in 2000,
14.097 million in 2005 and 15.713 million in 2010. The average annual growth rate during
2005-2010 was 2.2%, which was higher than that of 2000-2005, or 1.7% (UNESCO, 2012). The
ratio of the school age population to the total population of 40.513 million in 2010 (UN World
Population, 2012) was 38.8%. The estimated school age population in 2020 is 19.523 million,
nearly 20 million, assuming that the population will grow with the same average annual growth
rates of 2006-2010 based on the data obtained from UNESCO Institute for Statistics (UIS).18
Table 4-1: Transition of School Age Population (2000-2010) (persons)

2000 2001 2002 2003 2004 2005
Pre-Primary Age 2,826,878 2,904,338 2,996,145 3,094,219 3,174,764 3,262,541
Primary Age 5,288,648 5,312,512 5,361,576 5,436,240 5,535,984 5,654,977
Secondary Age 4,869,198 4,973,476 5,056,610 5,119,838 5,160,577 5,179,222
Total Population 31,253,701 32,076,186 32,927,864 33,805,301 34,702,176 35,614,576
School Age Population
41.5% 41.1% 40.7% 40.4% 40.0% 39.6%
to Total Population (%)
2006 2007 2008 2009 2010
Pre-Primary Age 3,375,631 3,492,795 3,606,098 3,692,553 3,781,524
Primary Age 5,790,105 5,945,924 6,121,256 6,312,644 6,511,297
Secondary Age 5,183,084 5,206,702 5,255,076 5,325,390 5,420,013
Total Population 36,540,948 37,485,246 38,455,418 39,462,188 40,512,682
School Age Population
39.3% 39.1% 39.0% 38.8% 38.8%
to Total Population (%)
(Source: School Age Population: UNESCO Institute for Statistics (UIS), Total Population: UN World
Population Projects)
4.1.2 Number of Schools and Enrollment19

The latest public statistical data is the Education Statistical Booklet of 2007.20 In this report,
18
Obtained from “Data Centre” of UNESCO Institute for Statistics (UIS) Website on 11th June
2012.(http://stats.uis.unesco.org/unesco/TableViewer/document.aspx?ReportId=143&IF_Language=eng)
19
In the current education system in Kenya, basic education includes a total of 12 years, that is primary
(8 years) and secondary (4 years) education. In the new Education Act, pre-primary education will be
included in the basic education. Therefore, this report covers pre-primary/primary/secondary education as
much as possible.
20
In the field survey, the EMIS division was visited, but the official in charge of EMIS was abroad to
study for a year, and the database could not be accessed. It was found that statistical data after 2008 had
not been compiled. Though recent statistical data are listed in the recent documents such as TF reports,
they do not match the data of the Booklet, therefore they are not listed in the tables of this report
(referred in the text).
12
statistical data are compiled and referred to those of the MOE, and Economic Survey 2011 and
2012, issued by the National Bureau of Statistics.
In 2011, the total number of pre-primary education centers (Early Childhood Development and
Education: ECDE) was 38,523 (of which 62.2% were public), the number of primary school
was 27,489 (public 69.3%), and the number of secondary schools was 7,297 (public 79.8%)
(MOE 2005, 2008b, and Kenya National Bureau of Statistics, 2012).
Table 4-2: Number of ECDE, Primary and Secondary Schools by Ownership

(Public and Private21) and the Share of Public and Private Schools (2003-2011)
2003 2004 2005 2006 2007 2008 2009 2010 2011*
Total 29,455 31,879 32,043 33,121 37,263 37,954 38,247 38,523 39,500
Public 19,956 21,893 22,479 22,796 23,100 23,783 23,823 23,980 24,588
% of Total 67.8% 68.7% 70.2% 68.8% 62.0% 62.7% 62.3% 62.2% 62.2%
ECDE
Private 9,499 9,986 9,564 10,325 14,163 14,171 14,424 14,543 14,912
% of Total 32.2% 31.3% 29.8% 31.2% 38.0% 37.3% 37.7% 37.8% 37.8%
Total 19,554 19,643 19,753 20,229 26,104 26,206 26,667 27,489 28,567
Public 17,697 17,804 17,807 17,946 18,116 18,130 18,543 19,059 19,848
Primary
% of Total 90.5% 90.6% 90.1% 88.7% 69.4% 69.2% 69.5% 69.3% 69.5%
Private 1,857 1,839 1,946 2,283 7,988 8,076 8,124 8,430 8,719
% of Total 9.5% 9.4% 9.9% 11.3% 30.6% 30.8% 30.5% 30.7% 30.5%
Total 4,071 4,113 4,339 4,362 6,485 6,566 6,971 7,268 7,297
Secondary
Public 3,583 3,622 3,624 3,635 4,245 4,454 5,019 5,296 5,311
% of Total 88.0% 88.1% 83.5% 83.3% 65.5% 67.8% 72.0% 72.9% 72.8%
Private 488 491 715 727 2,240 2,112 1,952 1,972 1,986
% of Total 12.0% 11.9% 16.5% 16.7% 34.5% 32.2% 28.0% 27.1% 27.2%
* Provisional
(Source: 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b, 2007-2011: Kenya National Bureau of
Statistics, 2012)
There are national secondary schools (boarding school), provincial secondary schools (boarding
school), and district secondary schools.22 As of 2012, there are 18 national secondary schools.
100 schools are scheduled to be added (JICA Kenya office). The number of provincial
secondary schools was not available. 23
Private schools in the table above include the Catholic private schools, Islamic private schools,
and informal schools. There are both types of private schools, those for high-achieving children
from wealthy families and those for poor or low-achieving children24 (interview with Nakuru
21
Every private school needs to register, and after the registration, is required to comply with the school
standards.
22
National schools are placed the highest priority among the three categories of secondary schools
(National, Provincial and District) followed by provincial schools, in distribution of teachers and teaching
and learning materials (MOE, 2012b).
23
Out of 1503 secondary schools in Eastern Province visited in the field survey, the number of provincial
school was 440 (field survey).
24
Application qualification of the schools depends on KCPE or KCSE score. A district secondary school
visited in the field survey is for students having scores of 250-300. Students who could not achieve a
score above 250 have no choice but to go to neighboring (lower-level) private schools.
13
Girls Secondary School). 25 It is said that the education level of public secondary schools are
higher than that of private secondary schools, and wealthy parents tend to send their
high-achieving children to national boarding secondary schools (interview with Nakuru Girls
Secondary School).
National enrollment trends of pre-primary, primary and secondary education are shown in
Figure 4-1. Following the implementation of FPE in 2003, additional enrollment of children
who had previously dropped out or never attended school raised the enrollment in public
primary schools to 7.5 million in 200426 (Cambridge Education, Mokoro & OPM, 2010).
Comparing the rate of increase in the number of schools and enrollment at the time of
introduction of FPE, the number of primary schools increased by 46.1% during 2003-2011, but
the number of public schools increased only by 12.2% (MOE, 2005d and 2008b, Kenya
National Bureau of Statistics, 2012). Therefore, it can be estimated that a certain part of
enrollment shifted from public to private schools. Secondary enrollment increased by 27.9%
since the implementation of FDSE in 2008, but the number of secondary schools increased only
by 19.2% (MOE, 2005d and 2008b, Kenya National Bureau of Statistics, 2012). It is estimated
that the number of students per school or per classroom has increased.27 Thus, the growth rate
in the number of public schools has not caught up with the number of enrollment.
11,000
10,000
9,000 Thousand
8,000
7,000
6,000
5,000
4,000
3,000
2,000
1,000
0
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011*
ECDE 1,255 1,323 1,456 1,538 1,627 1,644 1,672 1,691 1,720 1,914 2,193 2,370
Primary 5,917 5,926 5,942 6,063 7,160 7,395 7,603 7,632 8,330 8,564 8,831 9,381 9,858
Secondary 739 738 754 769 881 934 928 1,030 1,180 1,382 1,508 1,702 1,768
* Provisional (2011 enrollment)
(Source: MOE, 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b, 2007-2011: Kenya National Bureau
of Statistics, 2012)
Figure 4-1: Pre-Primary, Primary and Secondary Enrollment (1999–2011) (thousand)
25
There are also high-level private schools for poor children. DFID recognizes Bridge International
Academy (low cost secondary schools operated by an American NGO. It operates 60 schools across the
country) as a good practice, which has an advantage in the quality of teachers and managements, and
achieves higher students’ performance than public secondary schools. Therefore, DFID provides grants
specifically for students attending low cost private schools.
26
Note that primary enrollment of 2004 was 7.4 million, according to MOE statistics (Figure 4-1).
27
However, the data for the number of students per classroom was not available for secondary.
14
4.1.3 Enrollment Trend of Pre-primary Education
Before 1980, pre-primary education was exclusively the responsibility of local communities and
nongovernmental organizations such as churches, voluntary organizations, local authorities and
individual investors. The government changed it in 1980 and has since streamlined the
pre-primary program into the government administration. The training of pre-school teachers
and preparation of teaching materials are now undertaken by the government. The construction
of pre-primary education facilities and teacher salary has, on the other hand, continued to be met
by the communities and other nongovernmental agencies (WB, 2004a). Since there has been
much discussion regarding the objectives, management structure, and financing of pre-primary
education (WB, 2004a), the new Constitution in 2010 stipulated that pre-primary education is to
be included in the county’s functions. The new education bill and the proposed policy
framework express that the government would take actions to expand facilities and improve the
quality of teachers (Constitution of Kenya, 2010, MOE, 2012b, EDUCATION BILL, 2012,
DRAFT 2).
Pre-primary education has been growing significantly in the past 20 years. The gross enrollment
rate (GER) was 59.3% and the net enrollment rate (NER) was 42.1% in 2007 (MOE, 2005d and
2008b). As the constraints to the access to pre-primary education, the MOE pointed out issues of
an insufficient number of trained teachers and care givers, an inadequate number of pre-primary
and day care centres, limited availability of teaching and learning materials, limited community
participation, and inadequate nutrition and health support services (MOE, 2012b).
4.1.4 Enrollment Trend of Primary Education
Kenya’s primary education had expanded drastically since independence. However, the decade
until FPE was implemented in 2003 had seen a gradual decline in GER (WB, 2004a). GER
increased by 16% in 2003, and has been increasing slowly but steadily since then (MOE, 2008).
In 2011, the primary GER was 115%, reaching highest in the past ten years (Kenya National
Bureau of Statistics, 2012). The NER was 95.7% (Kenya National Bureau of Statistics, 2012),
marked the second highest of the 10 African countries covered in this study following Rwanda
(according to the data obtained from WB’s World Data Bank website). Gender and regional
disparities, however, still exist (Cambridge Education, Mokoro & OPM, 2010, WB, 2004a), and
enrollment rates of boys was higher than those of girls in most of the years (MOE 2005, 2008b,
2009b, Kenya National Bureau of Statistics, 2012)28. In the Implementation Completion and
Results Report of KESSP issued by the World Bank, the result of improvement of equity in
access was rated “unsatisfactory,” as the target primary NER of 96 % could not be achieved (as
of December, 2009) (WB, 2011).
The TF report pointed out the following factors that prevent achieving UPE: burden of the
school cost on parents, early marriage and tending livestock preventing children from going to
28
The difference in the GER in 2003 was 4.5 points, but it has increased to 6.3 points in 2007.
15
school, and the lack of facilities to accept all the children.
Table 4-3: Primary Gross and Net Enrollment Rates (2002-2011) (%)
2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
Boys 88.9 105.0 108.0 109.9 109.3 110.7 112.2 - - -
GER Girls 87.5 100.5 101.6 104.4 105.5 104.4 107.3 - - -
Total 88.2 102.8 104.8 107.2 107.4 107.6 109.8 110.0 109.8 115.0
Boys 76.5 80.8 82.2 83.8 86.5 94.1 94.6 - - -
NER Girls 76.3 80.0 82.0 82.6 86.5 89.0 90.5 - - -
Total 76.4 80.4 82.1 83.2 86.5 91.6 92.5 92.9 91.4 95.7
* Source of 2009 to 2011 data is Economic Survey 2012, and data by gender could not be obtained.
(Source: MOE, 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b, 2008: MOE, 2009b, 2009-2011:
Kenya National Bureau of Statistics, 2012)
4.1.5 Enrollment Trend of Secondary Education
The secondary (grades 9 to 12) GER was 25.7% in 1999, and it significantly increased to 42.5%
in 2008, when FDSE was implemented. The NER also increased from 13.7% in 1999 to 35.8%
in 2009 (MOE 2005d, 2008b, and 2009b). According to the EFA Monitoring Report (2012),
Kenya is one of the countries where the secondary enrollment has significantly increased,
together with Burkina Faso, Burundi, Chad, Congo, Niger, Tanzania, etc.
Those not attending secondary schools are disproportionately drawn from the poorest quintiles 29
(Cambridge Education, Mokoro & OPM, 2010). Inadequacies in the provision of educational
infrastructure, especially in Arid and Semi-Arid Lands30 (herein after, ASALs), a burden of
education cost, and inadequacy in curriculum were challenges that the proposed new Policy
Framework of the MOE pointed out. Policies such as providing low cost boarding schools in
ASALs and the review of the curriculum are currently planned (MOE, 2012b).
Table 4-4: Secondary Gross and Net Enrollment Rate (2002-2011) (%)
2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
Boys 27.2 29.7 31.7 31.3 34.6 40.4 - - - -
GER Girls 24.2 27.4 27.3 27.2 29.9 33.3 - - - -
Total 25.7 28.6 29.8 29.3 32.2 36.8 42.5 45.3 47.8 48.8
Boys 18.5 18.2 19.7 21.9 24.2 25.2 - - - -
NER Girls 17.1 18.9 19.1 19.1 20.9 23.2 - - - -
Total 17.8 18.6 19.4 20.5 22.5 24.2 28.9 35.8 32.0 32.7
* Regarding 2008 to 2011, the gender disaggregated data could not be obtained.
(Source: MOE. 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b, 2008: MOE, 2009b, 2009-2011:
Kenya National Bureau of Statistics, 2012)
29
The lowest level of income quintile.
30
ASALs make up 80% of Kenya’s total land area where 25% of the country’s population reside (JICA
“Community Agricultural Development Project in Semi Arid Lands”
http://www.jica.go.jp/project/kenya/5155099E0/00/index.html). ASALs cover most parts of Rift Valley,
North Eastern, Eastern and coast Provinces (UNDP “Kenya Natural Disaster Profile”
http://mirror.undp.org/kenya/KenyaDisasterProfile.pdf).
16
4.1.6 Literacy Education
Literacy rate is not included in the education statistic of the MOE. According to the Kenya
National Adult Literacy Survey conducted in 2007, about 29.9% of the youth aged 15 to 19
years and 49% of adults aged 45 to 49 years were illiterate (MOE, 2012b).31 The survey further
revealed high regional and gender disparities in literacy achievement, with Nairobi Province
recording the highest at 87.1% and North Eastern Province recording the lowest at 8% (MOE,
2012b).
Under such a situation, the Medium-Term Plan for Kenya Vision 2030 sets the target of
increasing adult literacy rate to 80% by 2012. The government also established the Directorate
of Adult and Continuing Education (ACE) and tried to cope with inadequately trained literacy
and adult education teachers, a high turnover of staff and volunteer teachers, and the lack of
teaching and learning materials. However, access to ACE and non-formal education (NFE)
programmes are still low whilst gender disparities are high. In order to address these challenges,
the new Policy Framework includes such measures as development of a strategy and
implementation plan of ACE, review of the Adult Basic Education and Training curriculum,
review and revision of the ACE policy, establishment of learning resource centres for Life-long
learning in every constituency, the capacity enhancement of ACE trainers, and development of
strategies to work with other private sector partners and NGOs (MOE, 2012b).
4.2 Internal Efficiency (Quantitative Internal Efficiency)32
In the Country Status Report of the World Bank, internal efficiency of Kenya’s education
system was rated low (WB, 2004a). In the EFA Monitoring Report of UNESCO, however, gross
graduation rate of Kenya was the highest among the Sub-Saharan 17 countries, thus, internal
efficiency of Kenya is showing the signs of improvement compared to other countries.
Several factors were pointed out for dropping out or repetition in the Country Status Report
(WB, 2004a). Schools are graded and headmasters are evaluated on overall school performance
at KPCE. Therefore, there are incentives for schools to let pupils drop out or repeat the same
grade for those who are not expected to perform well in the examinations in grade 7 or grade 8.
Poverty in the ASAL regions and slum areas, and the lack of interest in schooling are also
important factors of dropping out of school (WB, 2004a). Also there are said to be cases that
parents make their children repeat grade to avoid taking KPCE (interview with Kibera Primary
31
See Annex 4-3 for adult literacy rate of UNESCO UIS (though the figures are different from those of
MOE).
32
Statistical data obtained from the Kenya Education Statistical Booklet and other obtained materials are
(1) Survival rate to Standard 5 (not data of each grade), (2) Primary dropout rate (1999, 2003-2007. the
latest data of each grade is of 2003), (3) Secondary dropout rate (1999 and 2003 only. No data of each
grade) (4) Primary repetition rate (1999 and 2003 only. latest data of each grade is of 2003) (5) Secondary
repetition rate (1999 and 2003 only. No data of each grade) (6) Transition rate (1999 – 2008). Survival
rate, schooling years per graduate, total number of pupils from whom educational investment resulted in
waste could not be figured out.
17
School).
(1) Cohort Survival Rates
The cohort survival rates in primary education in Kenya are shown in Table 4-5. Until 2006, the
rate increased from 70% to around 90%, but the rate decreased to 73.8% (boys 70.9%, girls
73.8%) in 2007 (MOE 2005d, 2008b). In terms of gender comparison, girls marked higher
survival rates in most of the years (MOE 2005d, 2008b). The survival rates in Kenya were
comparatively high among the 13 target countries in this study (according to the data obtained
from WB’s World Data Bank website).
Table 4-5: Primary Survival Rate to Standard 5 by Gender (2000-2007) (%)

2000 2001 2002 2003 2004 2005 2006 2007
Boys 72.8 76.3 74.5 88.9 88.0 90.4 89.9 70.9
Girls 73.6 82.3 78.0 91.3 81.8 90.3 93.4 73.8
Total 73.2 79.2 76.2 90.1 85.0 90.4 91.6 73.8
(Source: 2000-2004: MOE, 2005d, 2005-2007: MOE, 2009b)
(2)Repetition / Dropout Rates
Repetition and dropout rates were the highest in the first (repetition rate 6.5 %, dropout rate
9.12%) and the second (repetition rate 5.84 %, dropout rate 5.88%) grades (World Data Bank,
EdStat). The data of Grade 7 and 8 was not available.
Trends of repetition and dropout rates from 1999 to 2007 are shown in Table 4-6. In primary
education, repetition rate decreased from 13.2% in 1999 to 9.8% in 2003. Dropout rate also
decreased from 4.9% in 1999 to 3.5% in 2007. In terms of gender comparison, repetition and
dropout rates of boys were higher than those of girls in most of the years. Secondary repetition
rate improved in 2003 compared to 1999, but the dropout rate in 2003 was higher than that of
1999 (MOE 2005d, 2008b, 2009b).
Nonetheless, both dropout and repetition rates achieved the EFA-FTI indicative framework
average of “less than 10%,”33 meaning relatively low level internationally.
33
World Bank, 2004b
18
Table 4-6: Primary and Secondary Repetition and Dropout Rates by Gender
(1999, 2003-2007) (%)
1999 2003 2004 2005 2006 2007
Primary Boys 13.5 10.1 －－－－
Repetition
Girls 12.9 9.4 －－－－
Rate
Total 13.2 9.8 －－－－
Boys 5.0 2.1 6.1 5 6.8 3.2
Dropout
Girls 4.8 2.0 6.9 4.9 5.9 3.7
Rate
Total 4.9 2.0 6.5 4.9 6.4 3.5
Seconda Boys 1.7 1.5 －－－－
Repetition
ry Girls 1.5 1.1 －－－－
Rate
Total 1.6 1.3 －－－－
Boys 5.3 6.9 －－－－
Dropout
Girls 5.6 6.2 －－－－
Rate
Total 5.5 6.6 －－－－
(Source: (Primary) 1999: MOE, 2005d, 2003-2007: MOE, 2008b, (Secondary) MOE, 2005d)
(3) Transition Rates
Primary to secondary transition rate increased from 46.5% in 2001 to 73.3% in 2011. In terms of
gender comparison, the transition rates of girls exceeded those of boys in 2003 and 2007, but in
other years, boys had higher rates than girls (MOE 2005d, 2008b, and 2009b). Reasons can be i)
high cost of secondary education, ii) early marriage of girls, and iii) gender disparity in
nomadic/pastoral areas preferring to support boys’ education if resources are limited (MOE,
2012a).
Regarding the secondary to tertiary transition rate, the percentage of those who were qualified
for admission to candidates was 24 to 26%, but the percentage of those who were admitted to
tertiary education remained only 5 to 7% (MOE 2005d, 2008b, 2009b).
Table 4-7: Primary to Secondary Transition Rate by Gender (2001-2011) (%)

2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
Boys 47.6% 44.4% 43.6% 47.2% 57.7% 58.3% 56.5% 61.1% - - -
Girls 45.4% 42.7% 49.8% 44.3% 54.2% 56.2% 63.2% 58.5% - - -
Total 46.5% 43.6% 46.4% 45.8% 56.0% 56.3% 59.6% 59.9% 66.9% 72.5% 73.3%
* Provisional
(Source: 1999-2002: MOE, 2005d, 2003-2007:MOE, 2008b, 2008-2009: MOE, 2009b)
Table 4-8: Secondary to Tertiary Transition Rate (2003-2007) (%)

2003 2004 2005 2006 2007
Number % Number % Number % Number % Number %
Candidates
Registered 207,730 100 222,676 100 260,665 100 243,319 100 276,192 100
No. qualified
for Admission* 49,870 24.0 58,240 26.2 68,040 26.1 62,926 25.9 74,282 26.9
Candidates
11,000 5.3 11,000 4.9 16,000 6.1 17,000 7.0 -
Admitted
*C+ and above
(Source: 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b)
19
4.3 Equity
4.3.1 Comparative Analysis of Access by Group
(1) Gender Disparities
In the Sessional Paper No.1 of 2005, achieving gender parity at primary and secondary
education by 2015 was set as the target (MOE, 2012a). However, the TF report 2012 points out
that gender disparity still exists especially in the ASAL regions and urban slum areas (MOE,
2012a, WB, 2011). The TF report then sets the performance target again to eliminate gender and
regional disparities in basic education and training by 2017.
The possible factors of gender disparity are as follows: the lack of equity in the distribution of
various resources, especially teachers, who resist to be posted in the ASAL areas; inequitably
distributed resources for science education to boys due to cultural and historical biases; high
cost of secondary education; gender disparity in nomadic/pastoral areas preferring to support
boys education if resources are limited; and early marriage of girls (MOE, 2012a). According to
the EFA monitoring report, Kenya is one of the countries that are making good progress in
improving gender disparity like Tanzania and Zimbabwe. The gender parity index (GPI) in
primary completion rate in Kenya was 0.70, but the index deteriorated to 0.48 in junior
secondary and to 0.37 in senior secondary education.
As shown in Figure 4-2, the primary GER of boys exceeded that of girls in most years.
Especially after 2003, the gap was enlarged (MOE 2005d, 2008b, 2009b). The possible reasons
include the following: Although the MOE have implemented the FPE policy since 2003,
households are still burdened by fees for education, which discourage girls’ enrollment in poor
households (WB, 2011, MOE, 2012a, interview in the field survey); It can be considered that
among several siblings in a family, some parents tend to choose boys for schooling and may
prefer to keep girls at home for house chore despite of FPE.
Regarding secondary GER (Figure 4-3), while the rate of boys increased from 27% to 40%, that
of girls increased only from 24% to 33%, and the gap had been enlarged (MOE 2005d, 2008b,
2009b). Primary to secondary transition rates (Figure 4-4) of boys were higher than those of
girls in years other than 2002, 2006, and 2008 (MOE 2005d, 2008b, 2009b). Regarding the
number of KCSE candidates (Figure 4-4), the number of male candidates was larger than that of
female in all the years (KNEC, 2011).
20
120.0 % %
45
110.0
40
100.0
35
90.0
30
80.0
25
70.0
20
60.0 1999 2000 2001 2002 2003 2004 2005 2006 2007
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008
boys girls
boys girls Year Year
(Source: MOE 2005d, 2008b, 2009b) (Source: MOE 2005d, 2008b, 2009b)
Figure 4-2: Primary Gross Enrollment Rate Figure 4-3: Secondary Gross Enrollment
by Gender (1999-2008) Rate by Gender (1999-2007)
Number
80% 450,000
75% 400,000
70% 350,000
65%
60% 300,000
55% 250,000
50% 200,000
45% 150,000
40%
100,000
35%
30% 50,000
0
99
00
01
02
03
04
05
06
07
08
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
19
20
20
20
20
20
20
20
20
20
Year
boys girls Males Females Year
(Source: MOE 2005d, 2008b, 2009b) (Source: KNEC, 2011)

Figure 4-4 :Primary to Secondary Transition Figure 4-5: Number of KCSE Candidates
Rate by Gender (1999-2008) (％) (2000-2011)
The GPI differs by Provinces. In 2007, while the national GPI was 0.94, the GPI in the North
Eastern Province was 0.63, marking the lowest of all the provinces. Improvement had not been
seen in the GPI in the North Eastern Province, though there were some changes since 2001
(MOE 2005d, 2008b, 2009b). According to the TF report, the national GPI was 0.97 in 2010
(MOE, 2012a).
(2) Provincial Disparities
While there has been a steady improvement in access, there exists regional disparity regarding
the achievement of EFA, MDGs, and Vision 2030 (MOE, 2012b). As shown in Figures 4-6 and
4-7, primary GER of the Nairobi Province and the North Eastern Province (2004 -2008) were
significantly lower than other provinces. In 2008, the GER of both boys and girls of the Eastern,
Western, Rift Valley, and Nyanza Provinces exceeded 100%. On the other hand, the GER of
boys in the Nairobi Province was 51.8% and 61.8% for girls, and it was 45.2% and 34.7%,
respectively in the North Eastern Province. Secondary gross enrollment trend (Figure 4-8, 4-9)
shows that the GER of girls of the North Eastern Province was especially low (boys 10.2%,
girls 6.4%) (MOE 2005, 2008b, 2009b).
21
％
160 160 ％
140 140
2004 2004
120 120
2005 2005
100 100
2006 2006
80 80
2007 2007
60 2008 60 2008
40 40
20 20
0 0
bi
Ea a
ey
l
t
za
bi
l
n
rn
y
n
al
l
ra
ta
st
rn
nz
ta
as
er
er
iro
er
er
l le
iro
al l
tr
an
te
To
oa
nt
te
To
No Ny a
Co
st
st
Va
st
st
en
Na
es
Na
V
Ce
Ny
es
C
Ea
Ea
Ea
C
W
ft
ft
W
Ri
Ri
h
rt
rt
No
Figure 4-6: Primary Gross Enrollment Rate Figure 4-7: Primary Gross Enrollment
by Province (2004-2008) (Boys) (%) Rate by Province (2004-2008) (Girls) (%)
70 ％ 70 ％
60
60 2004
50 2004 50
2005
40 2005 40
2006
30 2006 30
2007
20 2007 20 2008
10 2008 10
0 0
l
l
rn
za
st
bi
l
l
rn
n
y
ta
za
t
bi
ra
n
y
ta
ra
er
as
er
er
lle
i ro
er
a
te
lle
i ro
an
te
To
nt
To
an
nt
Co
st
Co
st
st
st
Va
es
Va
Na
es
Ce
Ny
Na
Ce
Ny
Ea
Ea
Ea
Ea
W
W
ft
ft
Ri
r th
Ri
rth
No
No
Figure 4-8: Secondary Gross Enrollment Rate Figure 4-9: Secondary Gross Enrollment
by Province (2004-2008) (Boys) (%) Rate by Province (2004-2008) (Girls) (%)
Survival rate to grade 5 in 2007 also differed by province. While survival rates of the Central,
Nairobi, and the Nyanza Provinces were 70 to 85%, those of the North Eastern Province were
42.3% and 34.1% for boys and girls, and those of the Coast Province were 50.4% and 53.5%,
respectively (MOE 2005d and 2008b, See Annex 4-6).
4.3.2 Trend of Special Education for Children with Special Needs and Inclusive
Education
It is estimated that there may be as many as 800,000 handicapped children up to 16 years old
(WB, 2004a).34 However, only 14,614 children with disabilities (about 8%) are enrolled in
educational programs for special schools while an equivalent number are integrated in regular
schools (WB, 2004a). The provision of education and training for this target group through
special programs and special schools is still far from adequate (WB, 2004a), and there are only
17 secondary schools for learners with disabilities throughout Kenya (MOE, 2012b).
The following issues are pointed out as the main challenges: the reluctance to implement
guidelines on the implementation of the special education policy and inclusive education;
34
See Annex 4-7 for 2007 statistics
22
inadequate data on the number of children with special needs; inadequate tools and skills for
assessing and identifying learners with special needs; and inadequate facilities and teachers
(MOE, 2012b).
The proposed new Policy Framework articulates the following strategies: to adopt and
implement inclusive education in all institutions, to design and implement programmes that
enhance inclusive education in all institutions, to develop and standardize diagnostic assessment
tools to facilitate the early identification, assessment and placement of learners with special
needs, to implement inclusive education programmes in pre-service and in-service teacher
training (MOE, 2012b).
4.4 Quality of Education35
4.4.1 Situation of Learning Outcome
(1) Completion Rates
The primary completion rates of Kenya by gender are shown in Table 4-9. In the past 5 years,
the rates were 70 - 85% as a whole. The completion rates of girls were lower than those of boys
in all the years (as according to the available data) (boys 88.3%, girls 78.2% (2009)) (JICA,
2011, MOE, 2008b, Kenya National Bureau of Statistics, 2012).
The secondary completion rates were relatively higher than those of primary education. In 2007,
the rate was 93.6% for boys and 83.2% for girls. The completion rates of girls were lower than
those of boys in all the years in the same way as primary education (JICA, 2011, MOE, 2008b,
Kenya National Bureau of Statistics, 2012).
Table 4-9: Primary and Secondary Completion Rates (Primary Standard 8,

Secondary Form 4) by Gender (2004-2011) (%)
2004 2005 2006 2007 2008 2009 2010 2011
Primary Boys 81.1 82.4 82.2 86.5 85.1 88.3 - -
Girls 75.7 72.8 71.5 75.6 74.5 78.2 - -
Total 78.4 77.6 76.8 81.0 79.8 83.2 76.8 74.6
Secondary Boys 91.5 98.2 92.0 93.6 - - - -
Girls 76.8 81.0 79.8 83.2 - - - -
Total 89.6 97.1 87.5 91.8 - - - -
(Source: (Primary) 2004-2009: JICA, 2011, 2010-2011: Kenya National Bureau of Statistics, 2012,
(Secondary) MOE, 2008b)
Note: Completion rate is the percentage of KCPE candidates to the population of targeted age (age 13) in
EMIS.
(2) Performance of the National Examination (KCPE, KCSE)
The results of the Kenya Certificate of Primary Education (KCPE) conducted after completing
the eighth grade and the Kenya Certificate of Secondary Education (KCSE) conducted after
35
Excluding internal efficiency and teacher policies.
23
completing the twelfth grade are shown in Annex 4-8 and 4-9. The average score of KCPE
ranged from 34.16 (English Composition) to 64.93 (Social Studies) (KNEC, 2011a). The scores
of girls exceeded those of boys in English and Kiswahili in both KCPE and KCSE in most of
the years, but in Mathematics, Science and Social Studies, the scores of boys exceeded those of
girls in all of the three years (KNEC, 2011a and 2011b).
The total number of candidates and trend of the results of KCSE in the past 11 years are shown
in Figure 4-10. While the number of candidates had increased 2.13 times during 2001 and 2011,
the candidate admitted to the tertiary level (C+ and above) had increased only 1.13 times (scores
obtained from KNEC). The students with grade under C+ are to choose to go to TVET or to find
a job (interview with KNEC). (For transition rates, see Table 4-8).
450,000
400,000 E
D-
350,000 D
300,000 D+
250,000 C-
C
200,000 C+
150,000 B-
100,000 B
B+
50,000
A-
0 A
2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
Year
(Source: Document obtained from KNEC)

Figure 4-10: KCSE Results (Form 4) (2001-2011) (persons)
(3) Learning Assessment Conducted by UWEZO36
UWEZO, 37 a NGO, conducted learning assessment of reading of English and Kiswahili and
numeracy in 2010-11, targeting 72,106 households and 171,644 children (134,243 of them were
assessed) in 124 districts. The result of the assessment shows that only 27.5% of the third grade
students and 51.1% of the fourth grade students could read a second grade story (Figure 4-11)
and that only 31.1% of the third graders and 52.5% of the fourth graders could do second grade
numeracy (Figure 4-12). Also, the results varied by province. Reading and numeracy levels of
children in the ASAL region were much lower than other regions (UWEZO, 2011) (Annex 4-10,
4-11).
36
UWEZO, 2011
37
An Initiative to develop competency in literacy and numeracy of children aged 6-16 in Uganda, Kenya,
and Tanzania. Uwezo is supported by Hivos (Humanist Institute for Cooperation with Development
Countries, a Dutch NGO) and Twaweza (an East African NGO), as well as international organizations
such as Hewlett and Flora foundation, the Ford foundation, and the World Bank.
24
(Source: UWEZO, 2011) (Source: UWEZO, 2011)
Figure 4-11: Primary English Reading Level Figure 4-12: Primary Numeracy Level
(2011) (2011)
(4) Performance of the International/Regional Assessment
Though PISA38 is not conducted, SACMEQ39 is conducted in Kenya. Kenya ranks in the top
level, with the reading ranked the fourth of 15 countries following Tanzania, Seychelles, and
Swaziland, and with the result of Math ranked the second following Mauritius. Comparing the
results of 2000 and those of 2007, the scores of reading and math decreased by 3 and 6 points,
respectively (SACMEQ website, Annex 4-12).
4.4.2 Learning Environment
(1) Pupils per Classroom (PCR: Pupil Classroom Ratio)
The national average PCR of primary schools in Kenya was 35.5 in 2007, achieving the national
standard40 of 40 (both for primary and secondary schools).41 The PCR of the Nairobi Province
was the highest (45.6, in 2007). Though the rate of the North Eastern Province was 40.2 in 2005
and 44.6 in 2006, exceeding the national standard, the rate improved to 37.2 in 2007 (MOE,
2005d and 2009b, Figure 4-13).
In Kenya, a system of multi-shift and double-shift school is deployed42 to expand education at

low cost. The number or the percentage of shifted schools, however, could not be obtained at
this study. It is pointed out in documents of MOE (MOE 2005a, 2005b, 2008) and donor reports
(UNESCO, 2010) that teaching methods applied to the multi-shift schools should be developed
in the PRESET43 or in the INSET.44
38
PISA=Programme for International Student Assessment
39
SACMEQ=Southern and Eastern Africa Consortium for Monitoring Education Quality
40
MOE (2009) Standard of Primary Education
41
Basic Standard Requirements for Registration of Educational and Training Institutions in the Ministry
of Education, April 2011.
42
Ministry of Education (2005)
43
PRESET = Pre-Service Training
44
INSET = In-Service Training
25
60
50
2003
40 2004
30 2005
20 2006
10 2007
rn
za
l
l
n
t
n
bi
ta
ra
as
er
er
ll e
i ro
te
an
To
nt
Co
st
st
Va
es
Na
Ce
Ny
Ea
Ea
W
ft
rth
Ri
No
(Source: 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b)
Figure 4-13: Primary Pupil Classroom Ratio in Public Schools by Province (2003-2007)
(2) Teaching Hours
Regarding teaching hours, students in Standards 1-3 take 35 classes per week (30 minutes/class),
whereas students in Standards 4-8 take 40 classes per week (35 minutes/class) (JICA, 2011,
Table 4-10). In can be calculated that annually, the total subject hours are 682.5 for Standards
1-3 and 910 for Standards 4-8.45
Table 4-10: Primary Subject Time Allocation

Mathema Social Religious Mother Creative Physical Pastoral
English Kiswahili Science Total
tics Studies Education Tongue Arts Education Programs
Standards
5 5 5 2 2 2 5 3 5 1 35
1-3
Standards
7 5 7 5 5 3 - 3 4 1 40
4-8
(Source: JICA, 2011, Original Source: Primary Education Syllabus, Kenya Institute of Education, April
2002.)
4.4.3 Procurement and Distribution of Teaching Material
The government of Kenya has been implementing a primary school textbook project with donor
support (DFID education support program (SPRED III, 2000-2005)) since 2000s to improve the
textbook procurement and distribution systems (WB, 2004). Financial decentralization of
textbook procurement also took place, and textbook procurement was devolved to school
management committees (herein after SMC). SMCs select textbooks from the approved list of
textbooks (called Orange Book) issued by the government (KIE), and purchase textbooks using
Schools’ Instructional Materials and Books Account (herein after SIMBA) (WB, 2004). In order
to increase transparency and accountability, each SMC is required to display the amounts of
grant received in the accounts, the amounts spent and for what purposes, and the remaining
45
Multiplied by the number of annual schooling weeks (MOE, 2012a).
26
amounts in the accounts (Cambridge Education, Mokoro & OPM, 2010).
In the KESSP (2005-2010), the grant program for primary school instructional materials had
been implemented through the pooled fund of donors. However, in June 2009, a fraud and
corruption in the KESSP pooled fund was detected. 46 The total losses in the primary
instructional materials grant program might be roughly estimated at a minimum of 22 % of the
total expenditure of the program (WB, 2011).
According to the education statistics of 2007, the textbook pupil ratio of primary Standards 1-8
was 1:2 for English, 1:3 for mathematics and science, and 1:4 for Kiswahili (MOE, 2008b,
Table 4-11).
According to the Implementation Completion and Results Report of KESSEP, over 60 % of

Standard 3 students were sharing a Math or English book with at least three other students in
2009, and the target of 1:1 was not achieved. Therefore, the progress achieved by the FPE
instructional materials grant was rated “unsatisfactory.”
Table 4-11: Primary Textbook Pupil Ratio (2007)

Subject/Standard English Math Science Kiswahili GHCRE
Standard 1 1:2 1:3 1:3 1:4 1:164
Standard 2 1:4 1:5 1:4 1:8 1:234
Standard 3 1:3 1:4 1:4 1:6 1:273
Standard 4 1:3 1:3 1:3 1:5 1:95
Standard 5 1:2 1:2 1:2 1:2 1:51
Standard 6 1:3 1:4 1:4 1:5 1:53
Standard 7 1:3 1:3 1:3 1:4 1:41
Standard 8 1:2 1:2 1:2 1:3 1:29
Total 1:2 1:3 1:3 1:4 1:71
Lower Primary 1:3 1:4 1:3 1:5 1:207
Upper Primary 1:3 1:3 1:3 1:3 1:49
(Source: MOE, 2008b)
According to the survey of SACMEQ, the textbook prevalence rate differed by province: while
the rate was 44.1% for mathematics and 43.7% for reading in the Nairobi Province, it was only
7.5% for mathematics and 16.6% for reading in the North Eastern Province, and 15% for
mathematics and 16.6% for reading in the Western Province, falling far below the national
average (SACMEQ, 2005, Annex 4-13).
4.4.4 Definition of Academic Ability
Definition of Academic Ability stipulated in the primary education syllabus and secondary
46
Unaccounted-for expenditure of Kshs.4.8 billion (US$60.2 million) was reported. It was initially
estimated that the instructional materials grants disbursed to primary schools should have been sufficient
to reach the KESSP target of a set of three textbooks for each primary student. But in addition to the fraud
and corruption, it was found that due to textbook theft about 10 percent of the book stock in the primary
schools was lost (WB, 2011).
27
education syllabus developed in 2002 is shown below (MOE, 2002a, 2002b, See Annex 4-14 for
full text). In the syllabuses, specific objectives for each subject and activity are also set.
Objectives of Pre-Primary, Primary, and Secondary Education in Kenya (extract)

【Pre-Primary Education】
• Provide education geared towards development of the child’s mental and physical
capabilities
• Enable the child enjoy living and learning through play
• Foster the child’s exploratory skills, creativity, self-expression and discovery, etc.
【Primary Education】
• Acquire, numeracy, creativity and communication skills
• Enjoy learning and develop desire to continue learning
• Develop ability for critical thinking and logical judgment, etc.
【Secondary Education】
• Acquire necessary knowledge, skills and attitudes for the development of the self and the
nation
• Develop ability for enquiry, critical thinking and rational judgment
• Enhance enjoyment in learning, etc.
(Source: MOE 2002a, 2002b)
In the new Policy Framework of 2012, it is also stipulated that “in order to be internationally
competitive and economically viable, Kenya requires an education system that will produce
citizens who are able to engage in lifelong learning, learn new things quickly, perform more
non-routine tasks, capable of more complex problem-solving, take more decisions, understand
more about what they are working on, …, have better reading, quantitative, reasoning and
expository skills” (MOE, 2012b).
4.4.5 Quality Assurance System of Education
(1) Quality Assurance Organization
The MOE has a Directorate of Quality Assurance and Standards, which has the function of
establishing, maintaining, and improving quality and standards in all public and private
educational institutions other than universities. Other functions are undertaking institutional
reviews, organizing and conducting subject mastery and pedagogical skills, capacity
development of teachers and tutors, assessment of new institutions for registration, maintaining
and disseminating lists of approved learning and teaching materials, supervising and
coordinating the implementation of curriculum in all educational and training institutions and
coordination of co-curricular activities at all levels (MOE, 2012a).
The current structure entails the following issues: the Directorate reports take long to be acted
28
upon because of heavy bureaucratic structure; the Directorate faces financial and infrastructural
constraints; and Quality Assurance officers are often directly recruited from serving teachers
who may lack the necessary skills, knowledge and competence to deliver on standards and
quality assurance. Therefore the government is proposing to establish an Education Standards
and Quality Assurance Council to maintain quality and relevance in basic education based on
the national standard and the laws of Kenya (MOE, 2012a, EDUCATION BILL, 2012, DRAFT
2). When the council is established, it will develop national standards of education institutions
of Kenya and regulations regarding quality and relevance. The new education framework also
intends to develop the system to transfer Quality Assurance and Standard Officers (hereinafter,
QASO) to the County, Sub-County and school levels to strengthen school-based quality
assurance (MOE, 2012b).
(2) Situation of Implementing the Promotion/Graduation System
In Kenya, school examinations are conducted47 for primary grades 1-8 students and
secondary grades 1-4 students, but basically students are promoted automatically
(interview with JICA experts, school visits/interviews48). When completing the 8th grade
of the primary school and 4th grade of secondary school, students need to take KCPE and
KCSE, respectively. The exam results and their trends are described in “4.4.1 Situation of
Learning Outcome”. Students with good KCPE grades are selected to attend the national
secondary schools, and the students with the next level grades can go to the provincial
secondary schools (interview with JICA experts). Students not admitted to the national or
provincial secondary schools go to district secondary schools, but each district school also has
its own baseline KCPE grades. Students with grades lower than the baseline are not admitted to
the secondary school even though he/she lives nearby (school visit/interview). The national
ranking49 is released in the KCPE newsletter by KNEC, and it is said that there are some
parents who make their children repeat grade intentionally (to make them achieve a good result
in KCPE) (school visit/interview).
It is pointed out that the current assessment system has the following issues: the assessment only
at the end of primary cycle does not adequately measure learners’ abilities; there has been
widespread malpractice in examinations (MOE, 2012b); since the assessments on a daily basis
conducted at primary schools are in the form of writing tests and many of them are done as
exercises for the KCPE, the learning over the entire period of primary school is patterned by the
evaluation grid of KNEC (UNESCO, 2010).
Though the results of each subject of the KCPE and the KCSE are low every year and “not
satisfactory,”50 students of Kenya achieve relatively high scores in SACMEQ (See “4.4.1 (4)
47
initial, mid-term, and final examinations
48
Ndururuno Secondary School, Kibera Primary School
49
Standardized score (average 50, standard deviation 15) is used to make comparison of schools easier.
50
WB, 2004
29
Performance of the International/Regional Assessment”). Therefore it is presumed that the
KCPE and the KCSE are mainly used as a means of determining who can move to higher
education (WB, 2004a).
The government is planning to develop Competence Assessment Tests (hereinafter CATs) in line
with the curriculum reform. As the strategies to implement the policy, KNEC shall be renamed
the Kenya Education Assessment Council, and schools shall be required to introduce regular
cumulative assessment using the CAT items termly and as a final scholastic assessment test
(MOE, 2012b).
(3) Quality Assurance and Standard Officer
In Kenya, QASOs are deployed in the Provincial Education Offices (PEO) and the district
education offices (DEO). Five QASOs are registered in the education office of the Eastern
Province51 visited in the field survey and there are three QASOs in the education office of the
West Embu District.52 Each QASO forms a team of 2-3 members including an auditor and visits
schools. About two schools are to be visited per day.53 When visiting schools, they inspect
facility infrastructure, school infrastructure, school management, way of teaching of teachers,
attendance of students/teachers, and the number of textbooks. Though the teaching and learning
process should be inspected by subject specialists, in practice, due to the limited number of
QASOs, one QASO monitors all the subjects. The results of school visit are compiled in the
district, fed back to the heads of schools, SMC, and BOG (Board of Governors),54 and are
discussed for necessary improvement. The reports are submitted one each to the school and the
district, and they are asked to follow them up. One copy of the report is kept in the province,
and 3 copies are sent to the MOE (interviews at Eastern PEO and West Embu DEO).
The QASOs of the Eastern Province are confronting the shortage of vehicles and computers.
Most of the districts have no vehicle. There are only a few computers shared by several users in
the PEO (interviews at Eastern PEO and West Embu DEO).
4.4.6 Curriculum
(1) Capacity of Curriculum Development Agency
The curriculum for basic education, non-formal education, special needs education, and teacher
education are developed by KIE based on the MOE policy decisions55 (interview with KIE).
51
In the Province, there are 5,136 primary schools and 1,503 secondary schools.
52
In the District, there are 100 pre-primary education centers, 64 primary schools and 32 secondary
schools.
53
The district QASO decides schools to visit at the beginning of the year and also decides schools the
province QASO visits.
54
The school management board of secondary education.
55
Based on the report of the national assessments, public opinions, and the result of research, etc.
(UNESCO, 2010).
30
KIE develops the curriculum in the following procedure: (1) the course panel56 performs needs
assessments and figures out the gap between ideal and reality in specialized subjects and
psychological development of students; (2) a report is developed regarding issues to be
improved; (3) a road map is developed through discussion on the report; (4) syllabus, leaning
materials and electronic learning materials are developed; (5) the new curriculum is
implemented as pilot cases. If no problem is found, the Academic Committee57 approves the
curriculum, and it is implemented throughout the country; and (6) monitoring and evaluation are
conducted to figure out problems of the new curriculum (interview with KIE) (UNESCO,
2010).
At the curriculum revision, various factors are examined, including: whether the objectives of
the curriculum are clear; whether it meets the social needs; whether it is achievable and realistic;
whether it does not burden teachers/students heavily; whether there is no unnecessary
duplication among subjects; whether physical and human resources are available and
appropriate for the effective implementation of the curriculum; whether it considers the issues
of HIV/AIDS, gender, environment, and drug and substance abuse, etc. (UNESCO, 2010).
The current curriculum was revised in 2003 to reduce burden on teachers and students and to be
in line with the FPE policy58 (UNESCO, 2010). A report of monitoring recently conducted by
KIE pointed out that students were not prepared with the skills of creativity and social
responsibility, etc., though they acquired cognitive domains in writing, reading and numeracy
(UNESCO, 2010).
(2) Trend of Curriculum Revision
The on-going education reform includes curriculum revision. According to the new Policy
Framework (MOE, 2012b), in accordance with the new Constitution and Vision 2030, the
government shall focus on core educational outcomes, based on developing a repertoire of skills
and competencies, such as thinking skills, communication skills, observation and investigative
skills, social and ethical skills, talent potential development, etc. The Policy Framework also
refers to competency-based curriculum and assessment which many East African countries
(Tanzania, Uganda and Rwanda) have adopted. It is pointed out that the examination-oriented
Kenyan curriculum should be revised, and competencies and skills shall be assessed (MOE,
2012b).
Also it stipulates that KIE shall be renamed the Kenya Institute of Curriculum Development
(KICD) and that KICD shall undertake a major curriculum reform and the assessment thereof, 59
56
The panel consists of MOE officials, QASOs of each subject, teachers, college tutors, examination
personnel, Kenya National Union of Teachers (KNUT), and religious groups.
57
The Academic Committee reviews the current curriculum in the course of developing the new
curriculum.
58
Subjects examined were reduced in primary and secondary education in this revision.
59
This intends to develop a progressive assessment framework which identifies the knowledge, skills and
31
and learning material development across all levels of education and training including teacher
education in order to align it with the Constitution and Vision 2030 (MOE, 2012b).
4.4.7 Languages of Instruction
In Kenya, the Constitution defines English as the official language and Kiswahili as the national
language. It is recommended to use local languages60 as the language of instruction from
pre-primary to primary third grade (lower primary (age 8))61 and English for the fourth grade
and above. Kiswahili is taught as a subject. In the regions where Kiswahili is a means of
conversation, Kiswahili is allowed to be used in daily conversation in schools (UNESCO,
2010).
One of the issues with languages is that although local languages are used until lower primary
education, textbooks are all published in English. Teachers of each region are not necessarily
able to speak local languages, which might make communication with pupils difficult. Science,
social studies, and math are especially difficult to teach in this sense (interview with KIE).
At the school visited in the field survey, students use Kiswahili and a local language at home,
and many of them are not able to express their opinion in English even at the 12th grade
(secondary Standard 4).62 Although the government recommends teaching in local language
until the third grade, parents want their children to receive education in English63 for the
preparation for KCPE. Especially, children from the Somali region cannot use English,64 and
some ethnic groups cannot pronounce English. 65 There was also an opinion that the government
should introduce a system to gradually increase English teaching classes from the first grade,
rather than sifting the language all at once in the fourth grade (interview with UNICEF).
4.5 Teachers
4.5.1 Number of Teachers
Table 4-12 shows the number of teachers in public primary and secondary schools (2002-2011).
The number of primary teachers had been scarcely increased during 2000-2011 (MOE, 2005d,
2008b, UNESCO, 2010, Kenya National Bureau of Statistics, 2012), since the government
restricted the total number of teachers to 235,000 since 1998.66 In 2007, the government lifted
the cap on the number, and it is likely that the number of teachers will increase (Cambridge
Education, Mokoro & OPM, 2010). Compared to 2007, the number of teachers increased by
competencies that will be assessed at each cycle.

60
There are 54 local languages in Kenya (interview in the filed survey).
61
However, pre-primary education in urban areas is mostly conducted in Kiswahili or English (UNESCO,
2010).
62
Interview with the deputy head of Ndururuno Secondary School
63
Interview with KNEC secretary
64
Interview with UNICEF
65
Interview with Secondary Education Dept. of MOE
66
Cambridge Education, Mokoro & OPM, 2010, p46
32
about 1,000 in primary schools and about 12,000 in secondary schools in 2012. However,
compared to 2003 when FPE was implemented, the number of primary teachers rather
decreased (MOE 2005d, 2008b, UNESCO, 2010, Kenya National Bureau of Statistics, 2012).
According to TSC, as of April 2012, the number of teachers falls short by 70,420 in total, or
37,341 for primary and 33,079 for secondary education (interview with TSC, TSC, 2012).
Table 4-12: Number of Teachers in Public Primary and Secondary Schools (2002-2011)
2002 2003 2004 2005 2006 2007 2008 2009 2010 2011*
Primary 172,424 178,622 178,184 171,033 169,311 173,153 170,059 171,301 173,388 174,267
Secondary 38,728 49,780 47,584 47,435 48,924 44,305 43,016 48,087 53,047 56,735
* Provisional
(Source: 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b, 2008: UNESCO, 2010a, 2009-2011: Kenya
National Bureau of Statistics, 2012)
4.5.2 Teacher Qualification and Placement
(1) Teacher Qualification and Placement
In Kenya, there are four qualifications for teachers: P1, S1 (Diploma), Approved, and Graduate.
Qualification conditions and the number of primary and secondary teachers by qualification are
shown in Table 4-13, Annex 4-15 and 4-16. Most of the primary teachers are qualified as P1
(58% in 2008) and most of the secondary teachers are S1/Diploma/Graduate/approved (WB,
2004a).
In 2005, the Sessional Paper No.1 articulated that the minimum qualification of teachers be set
to Diploma (MOE, 2005c). There is a system that, when a Certificate teacher takes a summer
courses provided at public and private universities, he/she will be approved as Diploma. This
course, however, is to take two specialized subjects of secondary education and not intended to
improve knowledge and skills to teach in primary schools (University of Sussex, 2011). In
addition, it is concerned that primary teachers with Diploma might not be satisfied with
continuing to teach in primary schools (University of Sussex, 2011). Nevertheless the course
will continue to be spread since from the teachers’ point of view, when they take the course,
their salaries are raised (interview with JICA experts).
Salaries of teachers depend on the qualification. For example, the minimum standard commonly
required for primary teachers is P1,67 but there are also teachers with Graduate qualification.
For teachers with Graduate qualification, salaries are paid based on the Graduate Job group, not
on the P1 Job group (WB, 2004a).
67
P2 is no longer granted. P3 had been abolished. (Annex 4-15)
33
Table 4-13: Qualifications of Primary and Secondary Teachers
Qualification Conditions
Graduate KCSE grade C+ is required as entrance qualification, and the qualification of Graduate is
acquired after completing four years at university.
Approved This qualification is acquired by experienced teachers of P1 or S1 with good track record
upon passing an examination
S1/ Diploma KCSE grade C+ is required as entrance qualification, and the Diploma qualification is
acquired after completing three years at Teacher Training College (TTC).
P1 KCSE grade KCSE grade C is required as entrance qualification, and the Certificate
qualification is acquired after completing two years at Primary Teacher Training College
(PTTC).
(P2) The lowest qualification of teachers in the current system. P2 has no longer granted to
new teachers. This qualification is acquired by P3 teachers who pass Kenya Junior
Secondary Examination (KJSE) (old system).
(P3) Abolished in the current system. The qualification was acquired by those who completed
primary education and receiving two years of education at Primary Teacher Training
College (PTTC).
(Source: JICA, 2011 and University of Sussex, 2011)
(2) Number of Pupils per Teacher (PTR: Pupil Teacher Ratio)
In Kenya, the national standard of PTR in primary education is 40:1,68 and secondary teachers
are deployed based on the calculation from the curriculum of each school69 on the basis of one
teacher per 27 classes (interview with Quality Assurance and Standards Dept).
Primary PTR has been increasing since 2003 (38.7) when the FPE was implemented, and in
2007 the ratio was 42.9.70 Therefore, the national standard has not been achieved. According to
the Implementation Completion Report of KESSP of the World Bank, PTR was 46:171 in 2009.
The ratio seemed to have increased mainly in the urban slum area and in the ASAL regions.
Secondary PTR is not listed in the statistic booklet of the MOE. Calculating from the enrollment
(Figure 4-1) and the number of teachers of 2011 (Table 4-12), the ratio was 30.
68
Note that according to the document of TSC, it is specified that the current staffing norm for primary
schools is one teacher per class plus 2.5% of the total of number of classes in the district (TSC, 2012).
69
Called as Curriculum based establishment (CBE) in Kenya (interview with Quality Assurance and
Standards Dept)
70
Education Statistical Booklet 2003-2007
71
Not included in Figure 4-14 as the sources are different (WB, 2011).
34
50 Number
45
42.3 42.5 42.9
40 38.7 40.0
35
30 31.0 31.6
25.2 ECDE
25 28.1 23.2 22.8 22.4
24.2 Primary
22.2
20
15
10
5
0
2001 2002 2003 2004 2005 2006 2007
Year
(Source: 2000-2002: MOE, 2005d, 2003-2007: MOE, 2008b)

Figure 4-14: Primary Pupil Teacher Ratio (2001-2007)
There are large disparities among provinces. For example, there are provinces which meet the
standard such as the Eastern Province (38.7) and the Central Province (39.4), whereas there are
provinces that far exceed the standard such as the Northeastern Province (63.1), the Coast
Province (53.2) and the Western Province (52.6). Especially in the Northeastern Province, there
has been a significant shortage of teachers since 2003 (Figure 4-15).
70 Number
60
50 2003
40 2004
30 2005
20 2006
10 2007
0
n
rn
l
l
st
za
n
bi
ta
ra
er
er
lle
i ro
a
te
an
nt
To
st
Co
st
Va
es
Na
Ce
Ny
Ea
Ea
W
ft
rth
Ri
No

Figure 4-15: Primary Pupil Teacher Ratio by Province (2003-2007)
4.5.3 Working Conditions for Teachers
The latest salary standard of teachers in Kenya was established in July 2011, which reflected the
agreement between the government of Kenya and KNUT in January 2009 (TSC, 2011) (Annex
4-17). There are ranks of teachers called “Job Group” from F to R, and the starting salary of the
lowest F rank (P2 teachers) is Ksh 13,750 (about 13,585 JPY),72 and the starting salary of the
Diploma teacher is Ksh 22,322 (about 22,054 JPY) (document obtained from TSC).
According to the World Bank, the average annual salaries of primary and secondary teachers are
“reasonable” compared to the per capita GDP of Kenya. The average annual salary of primary
72
Exchange rate: 1 Ksh = 0.988 JPY (JICA rate, as of May)
35
teachers is 3.5 times of per capita GDP and 5.5 times in secondary education. The total cost of
hiring teachers, however, is very high with cumulative costs of various incentives for teachers.
When incentives are taken into consideration, the average annual salary of primary teachers is 6
times of per capita GDP and 9 times for secondary teachers. Among several kinds of incentives
for teachers, in this report, hardship allowance (an incentive for teachers in disadvantage areas)
and responsibility allowance (an incentive for headteachers and deputy headteachers, etc.) are
shown in Annex 4-18 and 4-19.
Teacher’s salary of Kenya is also relatively high compared to the average teacher’s salary of
other low-income countries (primary, lower secondary, and upper secondary teachers) (WB,
2004a). Kenya ranks the seventh highest for primary teachers, the sixth for the lower secondary
teachers and the eighth for upper secondary teachers among 16 countries (Annex 4-20).
4.5.4 Teacher Education System
(1) Pre-service Training System (PRESET)
Pre-primary education programmes are largely provided by parents, communities and NGOs,
and qualifications of teachers are diverse. Most teachers are untrained73, and the quality is not
consistent across the country (UNESCO, 2010). In the education reform in 2012, the following
measures are planned: pre-primary education will be integrated into the education sector; TSC
will administer pre-primary teachers; and grant allocation and quality assurance system will be
reviewed and the framework will be developed (MOE, 2012b).
Primary teachers training programme is available at 20 public teacher training colleges, and 103
private colleges (as of 2010) (JICA, 2011). Students with grades of C and above (math D and
above, English C- and above) in KCSE are qualified for admission to these colleges.74 The
course duration is two years, and in the first year of the course, students study the following ten
subjects; Mathematics, English, Kiswahili, Science, Religious Education, Social Studies,
Education including Special Needs Education, Guidance and Counseling, Creative Arts,
Physical Education, and ICT. In the second year, they study five core subjects (English,
Kiswahili, Education, Physical Education, and ICT), and Optional subjects (A: Science, Home
science, Agriculture, Mathematics or B: Music, Art and Craft, Social Studies, Religious Studies).
Teaching practice is undertaken in the first year (KIE, 2012).
Secondary teacher training programmes are available at three Technical Training Colleges
(duration: three years, certification: diploma),75 or at universities offering bachelor of education
programmes (duration: four years, certification: graduate). Students with grade C and above in
KCSE are to be admitted, same as primary teacher trainings. Students are trained to obtain
73
According to the MOE (2012a), only about 44% of pre-primary teachers are trained.
74
Note that in disadvantage areas, there are cases that students with scores below the standard may be
admitted (WB, 2004).
75
as of 2010, JICA (2011)
36
specialized knowledge in two subjects to teach (WB, 2004a, UNESCO, 2010).
The TF report pointed out the challenges of PRESET as follows: (1) majority of trainers at all
levels of teacher training education lack the necessary skills and competences to train teachers;
(2) teacher training education suffers from low funding especially at the primary level; (3) there
is lack of adequate and appropriate tuition, teaching/learning materials and infrastructure (ICT);
and (4) over-emphasis on content rather than pedagogical skills (MOE, 2012a). And as
previously described, the primary teachers with university degree qualification do not have
competence in teaching contents or pedagogical skills at primary level because they are trained
in the universities for two secondary education subjects. Even though they are teaching at
primary schools, salaries are paid based on the secondary level. It is pointed out that for the
efficient use of the limited budget, primary teachers should be required the minimum and
optimal qualifications necessary for teaching in primary school, and should be paid by a salary
scheme for primary school (WB, 2004a).
(2) In-service Training System (INSET)
In-service trainings for head teachers, education field officers (supervisors) and teachers are
offered by KIE, Kenya Education Staff Institute (hereinafter, KESI), the Directorate of Quality
Assurance and Standards of MOE (trainings are offered at provincial and distinct levels),
textbook publishers, SMASE (Strengthening of Mathematics and Science in Primary Education)
and SMASSE (Strengthening of Mathematics and Science in Secondary Education) (KIE, 2011).
The list of training programmes is shown in Annex 4-21.
Since 2003, 93% of the primary teachers and 46.7% of the secondary teachers had taken
orientation or in-service trainings by KIE on the new curriculum (KIE, 2011a and 2011b).
According to the KIE survey, 55% of the primary teachers and 85.3% of the secondary teachers
strongly agreed that the training had enabled them to understand and interpret the syllabus,
whereas the following issues were raised: the in-service courses were not frequent enough; the
training cost was expensive;76 resource persons are incompetent; and the courses were not
enough prepared (KIE, 2011a and 2011b). Other challenges found in the survey included:
harmonization of the INSET programmes was limited as there are many players; coordination
between pre-service/in-service trainings was weak; and all the diverse needs of the teachers
were not addressed (MOE, 2009a).
With respect to the secondary in-service trainings, the challenges were pointed out as follows:
teachers with pedagogical difficulties hardly seek assistance from head teachers or QASOs, and
the skills and knowledge received from the in-service training were not utilized enough (KIE,
2011). As for the SMASE/SMASSE programs supported by JICA since 1998, they are
commended that the change of attitudes of teachers changed teaching practice, which improved
76
Schools pay transportation fees and meals (interview with the Eastern province and the West Embu
District).
37
students’ attitudes towards learning process.77 At the same time, it is also pointed out that there
is no accreditation framework of INSET services leading to minimal commitment among
teachers (MOE, 2009a).
The MOE intends to continue to decentralize education and training services by developing a
comprehensive framework and modalities for decentralization of agreed functions, resources,
and decision making authority to Provincial and District Education Offices, as well as zonal and
school-level education management bodies78 (MOE, 2009a).
4.5.5 Teacher Recruitment / Management
Teacher management functions 79 are carried out by TSC. TSC reviews the standards of
education, the demand for and supply of teachers, and advises the MOE on matters relating to
the teaching profession. Currently, TSC provides services to 268,060 teachers deployed to over
20,000 primary schools and 6,078 post-primary institutions across the country (TSC, 2012).
The recruitment of primary and secondary teachers is the function of TSC, but the process is
partly decentralized to provinces and districts.80 DEBs (District Education Boards) and BOGs
conduct selection exercise of primary and secondary teachers respectively, and teachers are
appointed by the TSC. Provinces supervise the overall selection exercise. When counties are
established, the process of assignment, promotion, transfer, discipline, and termination of the
employment will be decentralized to counties as field agencies of the TSC.81 The advantages of
decentralized system are expected as follows: provision of opportunities to ASAL areas to retain
teachers and selection of teachers by BOGs and DEBs to suite to their specific needs, etc.
(interview with TSC, TSC, 2012).
Teacher registration is also conducted by the TSC,82 and a teacher registration policy that
guides teacher registration has been developed. Due to inadequate funding, the TSC has not
77
JICA (2008) Report on Terminal Evaluation Survey on the Strengthening of Mathematics and Science
in Secondary Education project Phase II.
78
The objectives of primary education INSET investment program (IP) are (1) institutionalize and
strengthen the delivery of curriculum through INSET and other professional development processes, (2)
harmonize and improve the coordination of INSET provision, (3) strengthen school leadership,
management and governance for effective curriculum delivery. To achieve the above objectives, the
following strategies will be employed: (1) conduct regular INSET needs assessment , (2) develop a
national INSET strategy, (3) develop INSET providers database and catalogue of activities in order to
co-ordinate INSET provision, (4) develop INSET accreditation framework, (5) develop targeted INSETs
for professional development of teachers in ASAL and hard to reach areas, (6) decentralize INSET
program delivery to district, zones, cluster and school level, (7) integrate emerging issues in the INSET
programmes, (8) monitor and evaluate the effectiveness and impact of INSET programs.
79
To register trained teachers, to recruit and employ registered teachers, to assign, promote and transfer
teachers, to exercise disciplinary control over teachers, and to terminate the employment of teachers.
80
From the time the teaching posts are advertised until suitable candidates are identified. However, there
are issues such as flouting the guidelines leading to discontent from stakeholders, failure by some
regions to attract applicants such as ASAL and hard to staff areas (TSC, 2012).
81
Final approval is made centrally.
82
“For accountability and to avoid double registration,” according to the document of TSC (TSC, 2012)
38
been able to register all qualified teachers, nor to sensitize unregistered teachers on the legal
requirements (TSC, 2012).
The staffing norm for primary schools is one teacher per class plus 2.5% of total number of
classes in the district. 83 For post-primary institutions, teachers are deployed based on the
curriculum offered in each institution.84 In order to ensure equitable distribution and optimal
utilization of teachers, the TSC carries out regular teacher rationalization and transfers.85
The achievements of teachers are evaluated based on the performance contract concluded by a
teacher and a head teacher. The evaluation report is submitted to DEO (District Education
Officer), PDE (Provincial Director of Education) and TSC headquarters86 (interview with TSC).
Promotion of teachers is based on the existing schemes of service for teachers: availability of
vacancies, and budgetary provision. Due to the budgetary limitation, there are only limited posts
provided for those eligible for promotion (TSC, 2012).
Teachers of private schools have been required to have teachers’ qualifications since the new
Constitution of 2010, but the regulations of the TSC do not apply to them. As quality assurance
measures, the TSC established the Code of Regulation, standard of education, and the Code of
conduct & ethics for teachers (interview with TSC).
The current issue regarding teacher management is that the roles of the TSC and the MOE have
become ambiguous since the new Constitution of 2010 which specified the TSC as a
constitutional commission (JICA Kenya office). In 2011, TSC submitted its own bill (TSC Bill)
and the County Director of Education was appointed by the TSC in April 2012. The TSC also
intends to deploy QASOs in the counties (interview with TSC). On the other hand, as part of the
decentralization to counties and promotion of the education reform, the MOE also appointed the
County Education Directors (Daily Nation, 25th, May, 2012, JICA Kenya office). The series of
appointments and legal measures are said to be “the conflict between TSC and MOE”87 or
“power struggle.”88
83
Note that according to the interview with the directorate of Quality Assurance and Standards, the
standard is 40 students per teacher (interview in the field survey).
84
Curriculum Based Establishment (CBE). Based on the syllabus developed by a school, the number of
teachers is calculated by dividing the number of classes by 27 (the number of classes per teacher).
85
According to TSC, TSC asks teachers to work for at least 5 years at a school, but there are teachers
persistently asking for transfers which cause problems for TSC.
86
After counties are established, the line will be to head teacher, county, and TSC headquarters.
87
88
JICA Kenya office (May, 2012)
39
CHAPTER 5: PUBLIC FINANCE AND ADMINISTRATION IN THE
EDUCATION SECTOR
5.1 Public Administration
5.1.1 Decentralization of the Education Sector
Education sector in Kenya has been decentralized since 1983.89 The administrative matters that
had been under the jurisdiction of the federal government have been gradually delegated to 8
provinces and especially to 290 districts (Cambridge Education, Mokoro and OPM). For
example, in the education sector, after the introduction of the FPE policy in 2003, the authority
of schools was increased. In the Sessional Paper No.1 (2005), responsibilities for education
service delivery were delegated to DEOs. Responsibilities of each education organization are
summarized in Table 5-1.
Table 5-1: Responsibilities of Ministry of Education, Provincial Education Board and

District Education Board (current structure)
Institution Roles
Exercise administrative and regulatory control over education services,
coordinate education sector (MOE)
Develop education sector strategy, regulate and manage (MOE, TSC
(concerning teachers))
Ministry of Education Formulate budget and allocate grants (MOE, TSC (concerning teachers))
TSC・ KIE ・ KNEC ・ Monitor educational activities (MOE)
KEMI Develop curriculum and materials (other than for Universities) (KIE)
Develop and implement national examinations (other than for Universities)
(KNEC)
Pay salaries of teachers in public schools, recruit and deploy teachers (TIC)
and conduct teacher trainings (KEMI)
Manage and supervise provincial educational services
Implement, coordinate, and monitor technical training activities 1
Approve schools’ registration in provinces
Provincial Education Monitor schools in provinces
Board Monitor examination implementation in provinces
Manage human resources in provinces (appointment, transfer, recruitment,
and evaluation)2
Manage DEB and BOG
Administrate educational activities in districts
Develop educational plan at district level
Implement teacher development and support3
District Education Register schools in districts
Board Monitor schools in districts
Monitor examination implementation in districts
Manage human resources in districts (appointment, transfer, and recruitment)4
To be managed by SMC (primary) and BOG (secondary)
Schools Construct and maintain primary schools
Receive and spend school funds (including FPE and FDSE grants)
89
An initiative to promote development plans, built by bottom-up approach (District Focus for Rural
Development)
40
1) Courses for school heads, subject mastery trainings, QASO capacity building, student council
workshops, and SMASSE workshops for head teachers, etc.
2) In addition to the provincial staff, two staffs from TSC are deployed in each province and are
responsible for human resource matters of secondary education. Transfer request from teachers are
verified and dealt by those TSC staff. Recruitment interview is conducted by district for primary
teachers and by BOG for secondary teachers, and final decisions are made by the headquarters.
3) BOG, HOD (Head of Department), subject teachers, head teachers, QASO, accountants, etc. Since
there is no budget at districts, lecturers’ fees are paid by publishers and sponsors. Transportation and
meals are paid by schools.
4) Human resource management for primary teachers in their districts.
(Source: Developed by the study team in reference to WB, 2004a, UNESCO, 2010a, Sessional Paper
No.1, and field survey interviews)
In the new Education Bill, the MOE has included two major changes (1) to establish the
National Education Board (herein after, NEB), and (2) to establish the County Education Boards
(herein after, CEB) (in 47 counties)90 and to have them oversee the operation and management
of pre-primary education (Education Bill, 2012, Annex 5-2). In the new Policy Framework, the
MOE also states that they “develop an education sector strategy with short, medium and
long-term objectives and rationalize headquarters and county level staffing” (MOE, 2012b).
However, these policies are not aligned with current issues and it is not certain how
decentralization is enhanced by the establishment of NEB and CEB.
5.1.2 Management Capacity of the Ministry of Education
This study has reviewed the management capacity of the MOE with reference to the Capacity
Development Results Framework91 (CDRF) of the World Bank Institute.
Together with human, financial and natural resources, the CDRF regards sociopolitical,
institutional and organizational capacities of program/project implementation agency
(government, private sector, or civil society) as potential contributing / hindering factors toward
achievement of development goals. To this effect, the CDRF aims to construct plans for
capacity assessment and development and to conduct monitoring and evaluation by measuring
capacity factors, which express 1) conduciveness of the sociopolitical environment 92 , 2)
efficiency of policy instruments93 and 3) effectiveness of organizational arrangements94 (WB,
90
Current 8 provinces are to be divided into 47 counties. Therefore, it is expected that there are 6
counties per province, on average. Therefore, counties are smaller than current provinces, but bigger
than districts (currently 290).
91
A framework created and adopted by the World Bank to design, enforce, monitor, manage and evaluate
development programs and projects aimed at capacity development.
92
Factor composed of the political and social forces that determine priorities of development goals set by
the government, the private sector, and civil society. Indicators for this factor include leadership
commitment, consistency with social norms, participation of stakeholders in decision making, status of
accountability of public institutions, and transparency (WB, 2009).
93
This refers to the mechanisms used to guide stakeholder actions to achieve each development goal,
which include administrative rules, laws, regulations, and standards. Indicators for this factor include
clarity of policy documents, clarity of stakeholders’ rights and role, legality and relevance with upper
goals of policy documents, feasibility against the current administrative procedure, flexibility of policy
documents, and resilience against corruption (WB, 2009).
41
2009).
The study team considers the above factors to be linked with the interests of this study in the
following ways. While conduciveness of the sociopolitical environment is related to relevance
or validity of the sociopolitical environment in basic education, the efficiency of policy
instruments is considered to have close ties with the efficiency of conducting improvement
plans on basic education, and effectiveness of organizational arrangements links with the
effectiveness of identifying how the Ministry interacts with stakeholders and makes use of
resources to achieve development goals.
As there is a limit to adopt the CDRF rigorously in this study within a given timeframe for this
assignment, in this report, a similar framework learning from CDRF to review the management
capacity of MoE is used, as shown in Table 5-2. The frame has utilized the basic concepts of the
CDRF while using the terms relevance, efficiency and effectiveness in place of the capacity
factors of the CDRF. (However, their definitions basically followed those of the CDRF). The
frame has chosen possible indices from the CDRF indices that are reviewable in this study
based on the information gathered through the study.
Table 5-2: Frame to Review the Management Capacity of the Ministry of Education
3 review points Relevance Efficiency Effectiveness
Viewpoints in ・Is the MoE showing ・Are the roles of each ・Are goals in the sector
the reviewing commitment? stakeholder in and plan achieved?
process ・Are stakeholders able outside the MoE clear? ・Are actions taken and
(Possible to participate in the ・Are plans such as the budgets used in
indices) process of sector plan compatible compliance with the
formulating sector with policies of higher sector plan?
plans and policy order? ・Does the MoE possess
related documents? ・Are methods taken to enough coordination
・Is the MoE showing prevent corruption? skills to coordinate
accountability? (Such as an adoption of with stakeholders?
a monitoring system)
(Source: Developed by the study team in reference to the CDRF)
Results of the review are as follows.
(1) Relevance
According to the Implementation Completion Report issued by the World Bank in 2011, the
strengthening sector management was rated “moderately unsatisfactory” due to considerable
loss of funds by the fraud, although the Bank appreciated that the government had consistently
94
This factor is composed of cooperation structure including the systems, rules of action, processes,
personnel, and other resources that government and non-government stakeholders use to achieve
development goals. Indicators for this factor include clarity of development goals, vision and mission,
level of achievement of outcomes directly linked with development goals, efficiency to achieve output,
financial management capacity and certainty of financial source, trust among stakeholders, and
adaptability to change of external environment (WB, 2009).
42
shown a high level of leadership and ownership of the KESSP.
In addition, although the current education reform should have been more prioritized since it
aligns with the new Constitution and Vision 2030, the submission of the TF report delayed for
more than one year (interview with JICA Expert). Besides, even it has been more than 1.5 years
from the end of KESSP (2010), the new sector program has not been finalized yet.
In terms of planning process of the TF report, information sharing with donors was limited
(interview with DFID). Although the National Conference on Education was held in March
2012, too many participants and agendas resulted in insufficient process to reflect their voices.
Moreover, although the assessments of KESSP progress and achievement were planned to be
conducted twice, they were not conducted. There were governance risks associated with
allowing the MoE to plan, implement and monitor itself. Most components of the governance
and accountability action plan and governance strengthening plan were “either only partially
implemented or not implemented at all” (WB, 2011).
(2) Efficiency
The new Policy Framework and the draft Education Bill are consistent with the Constitution
2010 and Vision2030. The previous Education Act, the draft Education Bill and Sessional Paper
No.1 also state the roles of the MOE, SAGA, SMC, and counties.
However, there are some issues in the progress of decentralization. In the new Policy
Framework and the TF report, it is pointed out that since the present Act creates a centralized
system of management and decision making at the Ministry headquarters, governance bodies at
the provincial, district and institutional levels must refer many cases of decision making to the
Ministry headquarters. This undermines their independence, decision and self-responsibility.
Also, in the current centralized management structure within the MOE, provincial and districts
officers tend to take decision-making matters up to the command rather than directly take action
on the ground which could result in censure from the Ministry (MOE, 2012a).
Moreover, the Implementation Completion Report of KESSP pointed out inefficiencies of the
KESSP management systems including its insufficient institutionalization in the MOE, and
inaccuracy and unavailability of the EMIS data on the performance review95 (WB, 2011).
The Corruption Perceptions Index96 in Kenya was relatively worse in African region. The loss
of education resources caused by the fraud of KESSP further deteriorated the efficiency of the
education sector in Kenya.
95
“For more recent years, EMIS results were made available informally for only a limited number of
indicators because the underlying data have not yet been sufficiently cleaned or stabilized for publication”
(World Bank, 2011, p50).
96
According to the Transparency International (http://cpi.transparency.org/cpi2011/), the Kenya marked
2.2 points in the Corruption Perceptions Index, which ranks the 154th out of 183 countries. This was the
34th of 53 African countries and the lowest in 13 target countries of the present study.
43
(3) Effectiveness
The education indicators in Kenya show relatively high achievement among the 11
target countries in Africa in this study. In the project indicators of the Implementation
Completion Report of KESSP, however, the ratings were not very high: “unsatisfactory” for
access, “moderately satisfactory” for provincial equity, “satisfactory” for gender equity,
“unsatisfactory” for primary completion rate, and “unsatisfactory” for strengthening sector
management. Another indicator, quality and learning achievement was not rated (WB, 2011).
Moreover, due to the emerging evidence of the fraud, the pool fund was frozen and the KESSP
activities were not implemented as planned. Especially, the percentage of the budget
expenditure for the component of enhancing quality and learning achievement was 62% (WB,
2011). The damage to the quality of education in Kenya caused by this low achievement is
immeasurable. There is a risk on financial management of the government and the truth of the
fraud is not disclosed to citizens and donors.
Regarding the coordination capacity of the MOE, it may be concluded not sufficient since the
MOE does not attend the donor coordination meetings. Besides, coordination among
stakeholders is not enough, as officials are overloaded with responsibilities for both planning
and implementing (MOE, 2012a).
5.2 Educational Finance
5.2.1 Budget of Education Sector
(1) Proportion of Education Sector in the National Budget / Expenditure and GDP
Budget for the education sector was 6.2% of GDP in 2009/10 (MOE, 2012a) (Table 5-3).
Comparing internationally, it spends more than India and South Africa, whose per-capita income
is almost twice as much as that of Kenya (DFID, 2010, Figure 5-1).
(Source: DFID, 2010)

Figure 5-1: Education Expenditure Percentage of GDP (2006)
44
The share of the education sector in the government finance has been 23-28%, which is higher
than the FTI indicative framework indicator (20%) (MOE, 2012a). The government invests in
the education sector as the share of recurrent education expenditure in the government recurrent
expenditure was 32.7% in 2009/10 (Cambridge Education, Mokoro & OPM, 2010, MOE,
2005c). The percentage of recurrent expenditure in the education sector was 93.1% (2009/10),
accounting for most of the budget of the education sector (Cambridge Education, Mokoro &
OPM, 2010, MOE, 2012a, Table 5-3).
Table 5-3: Education Expenditure (as a percentage of Government Expenditure)

(2005/06 - 2009/10) (%)
2005/6 2006/7 2007/8 2008/9 2009/10

Education as a % of GDP 6.1 6.0 6.2 6.3 6.2
Education as a % of GOK total
28.0 26.0 23.2 25.0 26.7
expenditure
Education recurrent as a % of GOK
32.1 32.8 31.0 31.7 32.7
total recurrent
Education development as a % of
10.3 7.4 6.0 7.9 7.8
GOK development
Education recurrent as a % of total
93.0 92.4 91.9 91.0 93.1
education expenditure
Education development as a % of
7.0 7.6 8.1 9.0 6.9
total education expenditure
(Source: MOE, 2012a)
(2) Budget by Sub Sector
Although the expenditure of the education sector (both recurrent and development) has
increased from Ksh. 118.8 billion in 2006/07 to Ksh. 213.2 billion in 2011/12, the allocation to
the primary education sub sector has not changed much (Annex 5-2, Figure 5-2). The share of
2011/12 was Ksh. 11.5 billion (5.4%) for primary education, Ksh. 20.1 billion (9.4%) for
secondary education, and Ksh. 56.4 billion (26.5%) for higher education. Besides these
sub-sectors, there is a budget code called “General Administration & Planning”, which includes
teacher salary (except higher education) (Ksh. 121.6 billion in 2011/12, 57.05%) (Kenya
National Bureau of Statistics, 2011, 2012, Annex 5-2, Figure 5-2, 5-3).
45
250,000 Higher Education Higher Education
100%
KSh million Policy and planning 90% Policy and planning
200,000
Quality assurance and 80% Quality assurance and
standards
70% standards
150,000 Adult Education
Adult Education
60%
Teacher Education
50% Teacher Education
100,000
Special Education
40% Special Education
50,000 Secondary
30%
Secondary
Primary 20%
0 Primary
Pre-Primary 10%
0% Pre-Primary
7
9*
0*
1+
2+
/0
/0
General Administration &

/0
/1
/1
/1
06
07
08
09
10
11 Planning 1
20
20
8
General Administration
9*
0*
1+
2+
20
20
20
20
/0
/0
Year
/0
/1
/1
/1
Year
06
07
& Planning 1
08
09
10
11
20
20
20
20
20
20
* Provisional, +Budget Estimates including supplementaries * Provisional, +Budget Estimates including supplementaries
1: Includes salaries for teachers and all other education personnel 1: Includes salaries for teachers and all other education personnel
(Source: Kenya National Bureau of Statistics, (Source: Kenya National Bureau of Statistics,
2011, 2012) 2011, 2012)
Figure 5-2: Education Expenditure by Figure 5-3: Education Sub Sector
Education Sub Sector (2006/07 - 2011/12) Expenditures as percentage of Education
(million KSh) Expenditure (2006/07 - 2011/12) (%)
(3) Details of Education Budget
As described above, the share of expenditure of the education sector in the national finance has
been relatively large. However, 78.8%97 (2011/12) of it is spent for teacher salaries (Kenya
National Bureau of Statistics, 2011, 2012, Annex 5-3). According to the World Bank assessment
of KESSP, in the strengthening sector management component of the KESSP, the primary
education’s share of the MOE recurrent budget was targeted at least 55% and primary
non-salary recurrent expenditure was aimed at 15% of the total primary recurrent expenditure.
However, since the primary non-salary recurrent expenditure decreased to less than 11%, it was
rated “unsatisfactory” in the report.
(4) Proportion of Domestic Financing and Donor Assistance in Education Budget
According to the TF report of 2012, the share of the amount supported by donors in the
education sector expenditure was 3.8% in 2009/10 (MOE, 2012a). In the KESSP (2005-2010),
although at the planning stage, 94% was supposed to be covered by the government (Cambridge
Education, Mokoro & OPM, 2010), the actual share of the government was 30.3%, whereas the
share of donors was 30.6% (WB, 2011). 98
97
Calculate in reference to Annex 5-1. 82% of the recurrent expenditure was teacher salaries in 2007/08
and approximately half of them are allocated to primary education (Cambridge Education, Mokoro &
OPM, 2010).
98
The total proposed investment amount was Ksh. 543,412 million in the plan (MOE, 2005a), but in the
Implementation and Completion Report on KESSP (WB, 2011), the actual amount was USD 1,343
million (approximately Ksh. 115,653 million). It is equivalent to a fifth of the planned amount. The
government spent USD 410.86 million and donors contributed USD 414.01 million, thus, the funding gap
was USD529.43 million (Annex 6-1).
46
Table 5-4: Appropriations of Donor Supports as a percent of Education Expenditures (%)
2005/6 2006/7 2007/8 2008/9 2009/10
Appropriations in Donor
Supports as a % of 5.3 4.8 5.7 4.3 3.8
Education Expenditures
5.2.2 Flow and Administration of Funds Provided by Donors
The flow of the pool fund in Kenya is shown in Annex 5-4 (in the case of KESSP). Each
development partner (FTI, WB, UNICEF, DFID, and CIDA) transfers their fund to special
account in the Central Bank for Ministry of Finance. Requests for disbursement for activities to
be financed from pooled funds will be made on the basis of approved work plans and cash flow
projections for eligible expenditures99. Replenishment of funds to the Special Account will be
made upon evidence of satisfactory utilization of the advance, reflected in the quarterly
Financial Monitoring Reports (WB, 2006, Cambridge Education, Mokoro & OPM, 2010).
The fund transferred to the Special Account is moved to the Exchequer Account, the MOE
Development Account, and then the MOE Pooled KESSP Account. If requested by the
government, the fund can be paid directly to venders (WB, 2006).
In 2009, the fraud in the KESSP pool fund was discovered and the donor fund was frozen
(effective for only 30 months out of 45 months of the Credit periods). The Ministry of Finance
also issued a press statement that the Internal Audit Department (IAD) had found evidence of
fraudulent and corrupt activities in KESSP.100 From the IDA and forensic audit, the findings
revealed in September 2010, in total of Ksh 8.4 billion (USD 105 million) was spent as
ineligible expenditure, and in May 2011, it was found that as much as Ksh 4.8 billion (USD 60.2
million) was unaccounted-for expenditure (WB, 2011).
At the final evaluation of KESSP in 2011, the MOE mentioned that the next phase of KESSP
will be delayed for about two years due to the time that it will take to: (i) resolve the fraud and
corruption issues; and (ii) revise the next program based on lessons learned (WB, 2011). The
World Bank’s next education assistance would be decided according to the results of the
forensic audit conducted by IAD and how the government of Kenya would respond to it (WB,
2011, interview with WB).
In the Policy Framework in 2012, the MOE referred that they will institutionalize financial
tracking and auditing in all educational institutions at the national level and will develop
regulations which hold management bodies individually and collectively liable for any loss,
misuse or embezzlement of funds under their dockets (MOE, 2012b). It is not certain, however,
99
In the case of KESSP, disbursements were made three times a year.
100
The Ministry of Finance announced that the Government had initiated a series of actions: initiating the
suspension of staff implicated, instructing the Attorney General to freeze the project accounts, and
referring the IAD report to the Kenya Anti-Corruption Commission (KACC).
47
whether the World Bank and DFID would be convinced with above settlements.
5.2.3 Management System of Education Budget / Public Expenditure
The government budget in Kenya is managed with the cycle shown in Annex 5-5. The
government prepares “Budget Outlook Paper” and sets a tentative sector ceiling. The budget
cycle also includes budgeting based on programs, preparation of rolling three-year medium-term
expenditure frameworks (MTEFs), and annual public expenditure reviews (PERs) by each
ministry. After sector working groups submit their budget proposals to the Ministry of Finance
and stakeholder consultation and sector hearing are conducted, the final budget is decided and
disbursed (Cambridge Education, Mokoro & OPM, 2010).
5.2.4 Distribution of Grants
The FPE grant distributed to each school in Kenya is transferred to school accounts directly,
calculated by capitation amount multiplied by the number of students in the schools. The
capitation amount is fixed nationwide (FPE: Ksh1,020, FDSE: Ksh10,265. MOE, 2012a, Annex
5-6). According to the TF report of 2012, it is recommended to increase the FPE and FDSE
grants to Ksh 9,739 and Ksh14,614, respectively.
The initial successes of the FPE policy were reported in a 2005 expenditure tracking survey
which referred to a large impact on the poor children and effective delivery mechanisms (WB,
2011). Although it can be said that this grant maintains equity in that the universally equal
amount is distributed, there is an inequity among national, provincial and district secondary
schools, since the national secondary schools receive huge amount of subsidy for their facility
maintenance. 101
The FPE and FDSE grants are managed by SMC and BOG. Financial management by SMC and
BOD are supported by the government through audits. Schools have general purpose account
(here in after, GPA) in addition to SIMBA (WB, 2003, Cambridge Education, Mokoro & OPM,
2010).102
Financial management methods are summarized in the FPE and FDSE guidelines.
Implementation and enforcement systems including procurement at school level need to be
closely monitored (MOE, 2012a). According to DFID, 10% of the grants are not traceable
(interview in the field survey). The MOE describes in the TF report that they should enhance the
performance monitoring system to better track the number of audits being performed and scope
covered; the time spent on these audits; the audit recommendations; the responses by schools;
101
The Nakuru Girls Secondary School (national school) visited in the field survey received Ksh 48
million. The amount varies depending on the size and durability of 18 national schools. 30 additional
national schools will receive Ksh 25 million per school (Interview with Nakuru Girls Secondary School.)
102
This account system is the inheritance of the past project, Strengthening Primary Education
Development III (SPREDIII (2000-2005)) assisted by DFID. It was aimed to delegate responsibilities and
decision making to SMC for their textbook management (Cambridge Education, Mokoro & OPM, 2010).
48
and the follow up to ensure audit recommendations are implemented (MOE, 2012a).
Delay of disbursement of the fund was an issue reported by some schools in the field survey. In
some cases, the school received almost at the end of academic year (Ndururuno Secondary
School). Schools try to deal with the delay, by asking book shops to wait the payment,103 or to
manage from the balance brought forward from the previous year or other expense items.104
Apart from the above FPE/FDSE grants, national and provincial secondary schools receive
additional subsidy for maintenance. The amount varies by the size of schools. A national school
visited in the field survey received Ksh 48 million (approximately JPY 47 million). Newly
upgraded 30 national schools receive a fixed amount of Ksh 25 million (JPY 25 million) each
(interview with Nakuru Girls Secondary School).
On the other hand, 5% of the national budget is allocated to funds called the Local Authorities
Transfer Fund (herein after, LATF), which is managed by local authorities, and the Constituency
Development Fund (herein after, CDF), which is managed by members of parliament. A part of
these funds are used for classroom construction and scholarship. It is pointed out, however, that
fiduciary risks with LATF and CDF are high as they are not related to the recurrent expenditure
of the government and therefore not subject to clearly defined control, reporting and
accountability procedures like other public funds (Cambridge Education, Mokoro & OPM,
2010).
5.2.5 Private Education Expenditure
Not only the government, but also households pay substantial amount of educational
expenditure. 105 They pay PTA charges, examination fees, sports fees and boarding fees, which
constitute all off-budget spending so that the data is rarely available (MOE, 2012a).
Table 5-5 is a list of payment made by households to schools (the data before the introduction of
the FPE/FDSE grants). In a primary school106 visited in the field survey, they collect Ksh150
per year (only to supplement pupils’ lunch), whereas in a district secondary school,107 they
collect Ksh 4,100 per year (Ksh 1,800 for lunch and Ksh 2,300 for construction of a dining hall),
in addition to uniforms and transportation fees of students. It is more expensive in a national
secondary school,108 in total as much as Ksh 57,000 per student was collected annually for
boarding, meals, infrastructure maintenance, and operation, in addition to uniforms and
transportation.
103
Ndururuno Secondary School
104
Kibera Primary School and Nakuru Girls Secondary School
105
Although it was basically prohibited to collect school fees from parents after introduction of the FPE
grant, if it is approved by the MOE, schools can collect them. But it is prohibited to expel children
because of non-payment of fees (WB, 2011).
106
Kibera Primary School
107
Ndururuno Secondary School
108
Nakuru Girls Secondary School
49
Table 5-5: Components of Household Education Expenditures (Ksh, per child annually)
Primary level Secondary level
School fee 589 7,357
Uniform 217 703
Textbooks 253 503
Transportation 28 265
Food (primary) / Boarding (secondary) 25 825
Harambee contribution 99 245
Total 1,210 9,898
(Source: WB, 2004a, Original source: Welfare Monitoring Survey, 1997)
5.2.6 Unit Cost Analysis
Table 5-6 shows the unit public spending by education level (primary, secondary and tertiary).
In 2008, the spending per primary school pupil was Ksh 7,781 and the spending per secondary
school student was 7.5 times more at Ksh 58,585, whereas the spending per tertiary level
student was 17.7 times more than primary level at Ksh 137,707 (MOE, 2012a).109 Since
children from high-income households usually benefits from secondary and tertiary education
(MOE 2012a, Annex 5-7, 70.7% of tertiary students are from the richest quintile), it can be
concluded that there is an inequity of public spending in the education sector.
Table 5-6: Unit Public Spending by Level, 2005 – 2008 (KSh)

2005 2006 2007 2008
Primary 6,251 6,862 7,457 7,781
Secondary 20,783 24,918 29,485 58,585 (7.5 times of primary)
Technical 24,651 32,302 43,474 55,318 (7.1 times of primary)
Tertiary 113,867 143,353 138,417 137,707 (17.7 times of primary)
(Source: MOE, 2012a, Original source: Economic survey, etc.)
5.2.7 Projection of Midterm Demand and Cost for Teachers
TSC manages 330,000 teachers in 2011/12, including NFE and mobile schools,110 increased by
10% from 300,000 teachers in 2010/11. The projection of 2012/13 has the highest growth rate at
23.7%, of which secondary education is the highest at 25%, whereas primary education growth
rate is 18% (a document obtained from TSC).
109
Estimation by Unit Public Spending by Level, in 2008 (Ministry of Education, 2012a)
110
A school system that is suited to the lifestyle of children in the nomadic communities, who work for
stock raising, which allows learning to take place uninterrupted (Ministry of Education (2009) Policy
for Alternative Provision of Basic Education and Training. Ministry of Education (2010) Policy
Framework for Nomadic Education in Kenya)
50
Table 5-7: TSC Projected Teachers Establishment (2011/12 - 2016/17) (persons)
Projection Projection Projection Projection
2010/11 2011/12
2012/13 2013/14 2014/15 2015/16
ECDE 49,389 59,212 70,706 84,153 99,887 118,295
Primary 177,188 191,048 225,056 231,404 238,831 247,521
Post Primary 67,812 72,012 103,424 109,047 115,627 123,325
Non-Formal 7,500 8,992 10,737 12,779 15,168 17,964
Mobile Schools 400 480 573 682 809 958
Total 302,289 331,744 410,496 438,065 470,322 508,062
Year-on-year growth rate 109.7% 123.7% 106.7% 107.4% 108.0%
(Source: Documents obtained from TSC)
Based on the number of teachers listed above, if we calculate the necessary teacher salary
budget by 2016/17, it will be as much as Ksh 18.1 billion (increased by 51% compared to
2012/13) (Table 5-8, a document received from TSC).
Table 5-8: TSC Projection for Teachers Wage Bill (2011/12 - 2016/17) (million KSh)
Projection Projection Projection Projection Projection
2012/13 2013/14 2014/15 2015/16 2016/17
ECDE 14,166 16,574 19,392 22,688 26,545
Primary 64,192 75,618 77,751 80,247 83,166
Post Primary 38,886 55,848 58,885 62,438 66,595
Non-Formal 2,151 2,516 2,944 3,445 4,031
Mobile Schools 114 134 157 183 214
Total 119,510 150,693 159,130 169,003 180,553
Year-on-year growth rate 109.7% 123.7% 106.7% 107.4%
* Baselines of annual teachers’ wages are Ksh224-239,000 (ECDE, Non-Formal, and Mobile Schools),
Ksh 336,000 (Primary), and Ksh 540,000 (Post Primary) (TSC).
(Source: Documents obtained from TSC)
In the Sessional Paper No.1 of 2005, the government stated that they will provide targeted
instructional materials and teacher salary to needy public secondary schools, while encouraging
parents and communities to provide infrastructure and operational costs. It also says that
mobilization of adequate resources for the expansion of secondary education is a major
determinant of the envisaged increase in transition from primary education (MOE, 2005).
51
CHAPTER 6: TRENDS IN DONOR ASSISTANCE
6.1 Structure of Donor Coordination
The framework for donors’ coordination in Kenya’s education sector is the Education
Development Partners Coordination Group (hereby EDCG). Bilateral and multi-lateral aid
agencies, financial institutions, and international and local NGOs can participate in EDCG
(EDCG, 2005). Both the KESSP pool-fund donors such as World Bank (IDA), EFA-FTI, UK
(DFID), Canada (CIDA), and UNICEF and program/project based donors such as AfDB, US
(USAID), Japan (JICA), Australia (AUSAID), and France (AFD) have participated (a document
received in June, 2012).
Each donor was required to agree on “Partnership Principles for the Support to the Education
Sector in Kenya,” which outlines the key roles and responsibilities of both Development
Partners and the MOE in the successful implementation of the KESSP over the five years. The
pooled funding donors were required to sign on “Joint Financing Agreement (JFA)” (EDCG,
2005).
On the other hand, the government of Kenya has not attended the EDCG since July 2011. 111
The regular meeting between the PS and donors to be held quarterly has been held only once in
the last 1.5 years (as of April 2012). After the fraud and the freeze of the pooled fund of KESSP,
there is no prospect for construction of a new pooled-fund or donor financing of the next
program like KESSP. Both the World Bank and DFID express that they would not finance it
through the MOE unless the government of Kenya improves their financial management
capacity and they can be sure that the fund can be properly managed (interview with the WB
and DFID).
6.2 Trends of Cooperation by Each Donor
Although the only pooled-fund in the Kenyan education sector, KESSP, started from 2005 and
was supposed to be continued until 2010, the donors froze the fund in 2009. The pool funders
are listed in the Annex 6-1. According to the Implementation and Completion Report of 2011 by
the World Bank, the outcomes of the KESSP can be described as shown in Annex 6-2. The
overall project outcome was rated “unsatisfactory,” whereas the risk to the development
outcome was “high” and the borrower’s performance was rated “unsatisfactory.” The outcome
of ensuring equity of access was “unsatisfactory,” due to the unachieved NER. The NER of the
Northeastern Province was “moderately satisfactory.” The Gender Parity Index was
“satisfactory” since it exceeded “1.00.” The completion rate was “unsatisfactory” due to the
unachieved target. Moreover, since there was no improvement in education finance, it was rated
111
Based on the interview with MOE in the field survey. “The reason why MOE does not attend is that
the World Bank and DFID continuously criticized them regarding the fraud of KESSP. Thus, we made
it “cold war” between us.”
52
“unsatisfactory” (WB, 2011, Annex 6-2).
Table 6-1 shows the outlines of donors’ assistance. After the freezing of the KESSP pooled fund,
the World Bank has implemented a study to improve teacher performance and student learning,
as well as to improve accountability. DFID, another KESSP ex-funder, shifted their assistance to
access improvement in the Northeastern area, financial assistance to low-cost private schools,
and development of teaching materials and TV programs with the private sector.
Table 6-1: Donor Agencies and Outlines of Supports (2012)

Donor Support areas
African Education III Project. Construct classrooms (secondary and multi-purpose
Development Bank classrooms), supply laboratory equipment, and construct centers for NFE and
special needs educational. (about 48 million USD)
World Bank (1) Implement Public Expenditure Tracking Survey (PETS)/ Service Delivery
Indicators (SDI) survey (300,000 USD),1 (2) Teacher performance and student
learning (additional funding of 250,000 USD),2 (3) Improve Education Data
Management for Planning and Accountability (in the next 18 months),3 (4)
System Assessment and Benchmarking for Education Results (SABER) (2012 –
13),4 (5) Review of the national strategy for special needs education, (6) Present
Policy Note for New Government
USAID (1) Reading/Literacy in early primary school grades (9 million USD/year), (2)
Access & community participation in ECDE & primary schools (2 million
USD/year), (3) HIV/AIDS & Life Skills Education (2 million USD/year), (4)
Pre-service teacher education (2 million USD/year), (5) Decentralized
management training (3.5 million USD (2011-12))
JICA Secondary SMASSE, Primary SMASE (117 million KSh)
CIDA (1) Educational Expenditure Public Expenditure Tracking Survey (Ed PETS),
(2) ABE, (3) Improving Equitable Access to Quality Education among
Vulnerable Children in Kenya, (4) Designing another directive process on
quality of education in Kenya
UNICEF5 (1) Programmes to improve access to quality basic education for marginalized
children, (2) NoKET6 scholarship for nomadic girls, (3) support development of
Enrollment action plan of rural districts, (4) quality assurance functionalization
of Child Friendly School, (5) increase awareness at policy level, (6) utilization
of School Readiness Assessment Tool at ECDE, (7) ECDE mainstreaming
manual to County Government, (8) Pre-service Training for smooth transition
from ECDE to Primary, etc.
DFID (1) Construct and expand low cost boarding schools, introduce shift system,
supply toilet in northern Kenya, (2) scholarship for children who are not going
schools in northern Kenya, (3) Cash transfer for children who are attending
low-cost private schools, (4) Infrastructure improvement such as toilets, support
such as scholarships, social awareness raising for girls, (5) Develop program to
add grant information to existing school mapping to improve accountability,
support capacity improvement of community to pursue accountability (i.e.
Drive Accountability), (6) Support Monthly Educational Magazine (NGO),
Teachers Guidebook publisher (NGO), Know Zone TV programme (private),
(7) Technical support for MOE’s Financial Management Information System
(FMIS) and KESSP-II (GBP 63 million over 4 years 2011/12-2014/15 = about
97 million USD).
(Source: Database obtained from JICA Kenya office, June, 11, 2012)
Notes *1: With the ministries of education and planning, benchmark the government’s service activities
and survey what teachers do in a typical day, their levels of knowledge and skills, and how teachers
53
perform their teaching activities.
*2: Additional qualitative survey as part of the SDI work, conducted to more fully understand teachers’
service delivery in the classroom, and what is happening in classroom practice.
*3: Reconcile various databases (i.e. develop a master facilities list of the TSC, EMIS, KNEC, and school
mapping), publish and enhanced the quality and relevance of education data made available via the
Government of Kenya open data website, develop a feedback system for social accountability, develop
MOE’s capacity to maintain the databases, mine the data, and use the data and feedback to update
policy decisions.
*4: Develop diagnostic tools to benchmark education policies according to evidence-based global
standard and best practice, and improve the quality of education systematically
*5: Source: Education and Young People Program Overview and Outline of Work Plan in 2012
(document obtained at UNICEF).
*6: NoKET=Northern Kenya Education Trust
54
CHAPTER 7: RESULTS OF ANALYSIS
7.1 Top Priorities in the Basic Education Sector
The research and analysis conducted in the Study of Kenya identified various problems that the
sector faces. For example, despite significant improvement of access to basic education induced
by policies set forth by the government of Kenya, there are still children who cannot access the
education opportunity. The achievement level of students’ learning has remained low thus raises
issues in the quality of learning.
For a better understanding of the challenges faced by the basic education sector of Kenya, Table
7-1 compares Kenya to other countries in Sub-Saharan Africa in terms of access (primary NER,
secondary GER, and net intake rate (NIR) of primary education), internal efficiency (repetition
rate of primary education), learning outcome (completion rate of primary education), teachers
(PTR of primary education) and inputs (percentage of education sector expenditure in
government expenditure).
Among the countries compared, Kenya ranked third in primary NER after Rwanda and
Cameroon, while it also had the third highest primary education completion rate after Zambia
and Cameroon. In addition, Kenya’s secondary GER was the fourth among 11 countries,
whereas repetition rate was relatively low (the third lowest).
Table 7-1: Comparison of Education Indices of Kenya

and 10 Neighboring Countries (2010)
Education sector
Primary Primary
Primary Secondary Primary Primary expenditure (% of
Repetition Completion
NER GER NIR PTR government
rate rate
expenditure)
Kenya 91.4*1 47.8*1 - 6.02*2 76.8*3 42.9*4 17.2*5
*6
Zambia 91.4 33.4 50.6 6.0 103.3 58.0 19.9*6
Ethiopia 81.3 35.7 68.4 3.9 72.2 54.1 25.4
Uganda 90.9 28.1 67.8 10.8 57.2 48.6 15.0*7
Rwanda 98.7 32.2 86.4 13.8 69.6 64.6 18.2
Malawi - 32.1 80.6 19.0 66.8 79.3 12.1
Senegal 75.5 37.4 - 6.3 59.2 33.7 24.0*3
Burkina Faso 58.1 20.7 19.4 10.1 45.1 47.8 -
Mali 62.0 37.7 19.3 12.9 54.8 50.4 22.0
Cameroon 92.4 42.2 58.9*3 13.1 78.7 45.5 17.9
Niger 57.2 13.4 64.4 4.4 41.2 38.6 16.9
(Source: World Bank Website “World Data Bank” (May 28, 2012))
Notes*1: Figures are from Economic Survey 2012, as data could not be obtained from the World Data
Bank.
*2: The figure is that of 2005, as the figure of 2010 could not be obtained from the World Data Bank
(downloaded on May 23, 2012).
*3: Completion rate of the primary 8th grade from Economic Survey 2012, as data could not be
obtained from the World Data Bank.
*4: The figure is of 2007 from the Education Statistical Booklet (2003-2007), as data could not be
obtained from the World Data Bank.
55
*5: According to MOE (2012a), the figure is 26.7% (2009/10).
*6: The numbers correspond to data from the education sector program (NIF III) as well as statistical
data from the MoE, as data regarding secondary education GER and the education sector
expenditure to government expenditure ratio could not be obtained from the World Bank website.
However, the figure under the education sector expenditure to government expenditure ratio for
Zambia corresponds to the education sector budget to general budget ratio.
*7: Figure of 2009 from the World Bank Database Website.
From Table 7-1, it can be said that Kenya provides relatively better access to primary education
and has better results on completion/repetition rates than many of its neighboring countries.
Table 7-2 compares benchmark indices of the FTI Indicative Framework and educational
indices from this study to examine Kenya’s performance in the education sector compared to
countries that have shown positive performance en route to achieving EFA.
Intake rate or the indicator for access was not available. The primary education completion rate
and repetition rate as indicators for internal efficiency and PTR reached an average of the FTI
Indicative indicators. Indices regarding financial input (No.1 and 2) were relatively high,
although non-salary spending of the recurrent education spending was far below the average
(33%) at 11%. Besides, the total hours of instruction of Grades 1-3 were sufficiently lower than
the average.
Table 7-2: Comparison of EFA-FTI Indicative Framework Indices

Average of countries
showing positive Kenya
Index
performance in achieving (National Figure)
EFA
1．Percentage of the government revenue
20% 17.2% (2010)*1
allocated to the education sector
2．Percentage of education sector budget
42 - 62% 46.6% (2009/10)*2
allocated to basic education
3．Intake Rates 100% n/a*3
4．Primary education completion rate 100% 76.8% (2010)*4
5．Primary education repetition rate Less than 10% 6.02% (2005)*5
6．Pupil teacher ratio in public schools 40: 1 42.9: 1 (2007)*6
7．Percentage of non-salaries spending in
33% 11%*7
the recurrent education spending
Grades 1-3: 682.5 hours
8．Annual hours of instruction 850 - 1,000 hours
Grades 4-8: 910 hours *8
(Source: WB, 2004)
Notes*1: World Data Bank. According to MOE (2012a), the figure is 26.7% (2009/10).
*2: MOE (2012a).
*3: Data could not be obtained from the World Data Bank or MOE Education Statistical Booklet
(2003-2007).
*4: Economic Survey 2012.
*5: World Data Bank (downloaded May 23, 2012).
*6: Education Statistical Booklet (2003-2007).
*7: Number is of expenditure other than teachers’ salary as percentage of primary recurrent
expenditure obtained from the World Bank (2011).
*8: Multiplying weekly instruction hours (JICA, 2011) by annual schooling weeks (MOE, 2012a).
56
7.2 Factor Analysis of Top Priorities
As mentioned earlier, when comparing education indices of the EFA-FTI Indicative Framework
of Kenya to that of other countries in Sub-Saharan Africa, indices of access and internal
inefficiency were relatively high. On the other hand, as many findings of this study revealed,
there are issues that need to be dealt with as the top priority, in terms of policies, inequity, and
quality of education, which are not explicitly shown in the above indicators. Below are the
issues and factors behind.
(1) Policies (Process and Contents of the Educational Reform)
The current educational reform is likely to be reflected in the next phase education sector
program, designed accordingly and realized, since the most contents of the TF reports except for
education system, school calendar, and FPE/FDSE block grant amount were included in the new
Policy Framework.
However, during the process of the reform, information sharing was limited to the development
partners (interview with DFID), too many educational stakeholders were involved (interview
with UNICEF), and some issues written in the TF report and countermeasures did not match.
Besides, although it is estimated that the MOE will need Ksh 340 billion for the implementation,
the validation of financial sources is not enough. The County Education Office to be established
in order to promote decentralization will take over the current roles and responsibilities of
provincial education office. However, the division of works between the County Education
Director who is deployed by TSC and County Director of Education who is deployed by MOE
is not clear (Daily Nation, May 25, 2012, and JICA Kenya Office).
Although the new Policy Framework is aimed at starting implementation from September 2013,
there are still rooms to be discussed and validated.
(2) Equity
1) Gender Disparity
Although the access to education in Kenya has been improved, there is a gender disparity in
some equity indicators. Especially, the figures of boys in the secondary GER, the number of
candidates of KCSE, and completion rate are different from those of girls. In the Northeastern
area, the disparity is bigger than other areas (4.3.1 (1) By Gender).
Despite the fact that the MOE have implemented the FPE policy since 2003 and the FDSE
policy since 2008 to improve access, equity and quality of education, households have still been
burdened by fees for education.112 It also discourages girls’ enrollment in poor households (WB,
2011, MOE, 2012a, interview in the field survey). Regarding the gender disparities on GER in
secondary education, one factor can be the low achievement of girls’ KCPE scores. Since girls
112
Maintenance of school infrastructure, lunch, etc.
57
are relatively lower scores than boys, they cannot enter neighboring secondary schools, thus
may give up enrolling a secondary school at the end.
2) Disparities between ASAL Area and Other Areas
There is a regional difference in GPI and GER of primary and secondary education between
ASAL and other areas. This tendency is especially apparent in indicators of girls (4.3.1 (2) By
Province).
The government has already tried to respond to the issue by preparing low-cost boarding
schools for nomadic children, providing special scholarships and scholarships for girls
(UNICEF project), and introducing feeding program and mobile schools (MOE, 2012a). There
remain, however, children who cannot access education.
There are several factors behind this issue: not having a clear institutional framework to oversee
the development of policies and strategies; having religious obligations which require children
to attend Madrassa/Duqsi schools; high levels of poverty; challenges of insecurity and
inadequate educational institutions; inappropriate learning materials; lack of teachers with a
nomadic background; and cultural practices of early marriages (MOE, 2012b).
In addition, issues that children from the Somali are which belongs to the Northeastern area
cannot speak English113 (4.4.7 Languages of Instruction) and that the areas have high PTR
(4.5.2 Number of Pupils per Teachers) also contributes to the factors of internal inefficiency.
Although the TSC sets the hardship incentives to increase teachers deployed in the ASAL area,
the conflict among ethnic groups after the 2007 Post Election Violence may still affect the
teachers’ deployment.
(3) Quality of Education
As shown in UWEZO (2010), the dismal level of reading of English and Kiswahili and
numeracy at lower levels (WB, 2011) raised a question to the Kenya’s education and
examination system. Some factors can be analyzed.
Firstly, the number of primary teachers has decreased (compared to that of 2003, the year the
FPE policy started), whereas the number of teachers in secondary education has increased (4.5.1
(1) Number of Teachers). Secondly, teachers tend to put responsibilities of students’ low
achievement level to other factors such as lack of parents’ understanding, lack of children’s
practice, and lack of facilities and teaching and learning materials. Many teachers and
educational officials tend not to connect the students’ achievement with their way of teaching
(interview in the field survey). Besides, issues such as a high rate of absenteeism or teachers’
not coming to classrooms on time (interview with DFID), the low quality of instructors and less
weight on pedagogy in PRESET (4.5.4 Teacher Education System), INSET which is not aligned
113
58
with the need of teachers (KIE, 2011), textbooks issued in English although local language is
accepted to be used as languages of instruction from Grade 1 to 3, and insufficient hours of
instruction can be also factors that deteriorates the quality of education.
On the other hand, the national examinations especially KCSE are positioned as a critical
boundary moment to determine the possibility to advance to higher education and to determine
which schools to enter. When asked about leaning achievement, most head teachers only make
reference to improved mean scores, which may just mean systematic drilling of children at the
expense of lifelong learning (WB, 2011). Guidebooks for KNEC examinations are circulated
(interview with JICA Expert). Parents intentionally let children repeat grades to have higher
scores (interview with Kibera Primary School). There are even children who commit suicide in
despair over the examination results (interview with UNICEF).
Currently, the curriculum is planned to be shifted from an exam-oriented curriculum to a

competency based one along with the educational reform and the new Constitution and Vision
2030. The system of national examinations also should be aligned. However, as a background of
the current high-tensed examination system, it can be noted that the grades of KCPE and KCSE
are one of the assessment indicators of education officials in provinces and districts (interview
with KNEC). Therefore, as students’ grade (average) improves, the rating assessment of
education personnel gets higher (WB, 2011), and it accelerates the examination-oriented
learning. As long as the way of education officials’ assessment does not change, the shift to
competency based curriculum after the education reform would be difficult.
(4) Management of Educational Finance
Although the budget amount has been increasing, the share of primary education sub-sector is
lower than that of secondary and higher education and teacher salary (5.2.1 Budget of Education
Sector). The education system with three ministries/independent organizations, namely, MOE,
MOHEST and TSC, in charge might be one of the factors not to be able to prioritize key issues,
since these organizations may compete to get as much budget as possible. The FPE/FDSE block
grant to all students might be another factor which pressures the recurrent budget of primary
education (WB, 2011).
According to the Implementation and Completion Report of KESSP, whether the FDSE policy
was the most cost-effective way to enhance equity in access to secondary education is a
pertinent question. Although a slightly larger proportion of low-income students were able to
attend secondary education, this result might have been achieved with significantly lower
expenditure through an expanded and better targeted bursary program. The other factors to
pressure the educational finance may be (i) the teacher salary mechanism based on qualification
rather than the post deployed (since there are many primary teachers who have the graduate
qualification and to be paid as secondary teachers) and (ii) the large amount of subsidy
distributed to the national secondary schools.
59
7.3 Priorities of Kenya’s Policy
In the new Policy Framework, the following priorities are listed in order to achieve the goals of
the Constitution of Kenya and to provide free and compulsory basic education to every child in
Kenya.
(1) Enhancing access, equity, quality and relevance

(2) Education for marginalized, hard-to-reach and vulnerable groups
(3) Curriculum and Assessment and Standards and Quality Assurance (QAS)
(4) Information and Communication Technology (ICT), open and distance learning (ODL) in
education and training ICT
(5) Governance and management
(6) Planning, implementation, monitoring and evaluation
(7) Financing and resource mobilization
(8) Public-private partnership
If (2) and (3) underlined above are to be implemented, enrollment of the hard-to-reach children
in the ASAL and slum areas can be achieved, as well as regional equity. As for the examples of
these policies in the ASAL area, the government tries to implement the framework of nomadic
education plan, to involve Madrasah Islamic schools into public education, and to introduce
open and distance learning, etc. (MOE, 2012a). However, although the nomadic education
policy was planned (in 2010 with UNICEF), since legal measures to alleviate registration
conditions to be a school have not come along with, it has not been implemented yet (interview
with UNICEF). Besides, some possible factors such as languages of instruction and textbooks
inhibiting their enrollment have not even been indicated in the Policy Framework. If the
government seriously tackles the issue of regional disparities, as already described above, a
comprehensive action plan including a reconsideration of the FPE block grant, the way of
recruiting teachers in the ASAL area, readjustment of curriculum and languages of
instruction/textbooks, along with the legal alignment must be designed carefully.
The paradigm shift from exam-oriented education to competency-based education may be

achieved if (3) above takes place. However, if the new examinations are filled with questions to
test whether or not students memorize their knowledge, the original drilling methodology might
be effective and thus the lessons cannot promote students’ way of thinking. Therefore, in future,
it is pointed out that the things to be measured in Kenya’s examinations should not be on
whether he/she has specific knowledge or not, but should be the one to question the way of
applying the knowledge (interview with JICA Expert).
In terms of (6) governance and management, it is expected to improve the quality of education
by developing a comprehensive framework of teacher education and by making the Continuing
Professional Development (CPD) function. On the other hand, it is necessary to review the
upgrading system which provides teachers with unnecessary subject matters for teaching in
60
primary education (University of Sussex, 2011). The MOE must utilize the assessment of
learning outcomes to shape new focus on teachers, materials, environments, contents and
methods (WB, 2011).
If the educational finance is regularly reviewed by implementing (7) above, along with
integration of the MOE and the MOHEST and a possible mobilization of private finances as
shown in (8) above, the burden of secondary and higher education finance on the government
which requires expensive infrastructure and facilities may be alleviated and consequently may
increase the share of primary education finance. However, things written in the new Policy
Framework are so exhaustive that it is impossible to implement everything within the limited
resources. Besides, even though the TF report recommends abolishing the collection of
education fee from poor households (MOE, 2012a), there is no financial perspective (interview
in the field survey). It is expected that implementation of these financial policies would be very
difficult.
It is necessary (i) to review the amount of the FPE/FDSE block grants and necessity of equal
distribution; (ii) to review the framework of teacher salary (matching between “qualification”
and “deployment”); (iii) to improve inequality of subsidies among national, provincial and
district secondary schools: (iv) to validate the effectiveness of budget allocation; and (v) to
increase the share of primary education sub-sector. It is also an urgent issue to strengthen
financial management of the government of Kenya and the MOE because the fraud of the
KESSP pooled-fund caused the delay of development in the Kenyan education sector.
7.4 Challenges and Necessary Considerations
The study has given rise to the following challenges and points for consideration when
conducting an analysis of the basic education sector.
(1) Difficulty of Obtaining Educational Statistics and Inaccuracy of Statistical Data
In Kenya, the MOE has not been functioning since 2009 due to the fraud. Thus, data
management has not been updated since then (JICA Kenya Office). Although the study team
requested for EMIS data, the only person in charge was not in the office and the remaining staff
cannot access the server. Besides, there was an issue of inaccuracy and reporting capacity since
there were many inconsistent figures across several documents of the government as well as
data without the sources. Therefore, it was hesitated to refer to some government documents in
this study. Under these circumstances, the process to review the current education sector was
difficult and inefficient.
(2) Difficulty of Producing the Report in the Middle of the Educational Reform
In the situation where the education reform is in progress, when asked about the planned actions,
many interviewees put their own future measures on the shelf and instead indicated that “it
depends on the reform.” Besides, the information has become huge and made it difficult to meet
61
the limitation of the number of pages of the present report, since it was necessary to describe
both the current system and the future direction. Moreover, since many of the references were
written before the educational reform, it was difficult to refer to them directly. So there was no
other choice but to analyze by the team.
(3) Too Many Items to Research, Too Many Directorates/Organizations to Visit
In this study, information to be collected and the number of directorates/organizations to visit

were huge within a short period. Since in each interview, the time was limited within 1-1.5
hours, there were cases that all information or cases were not captured or deeper discussion was
impossible in exchange for the basic data collection. For example, in the Directorate of Quality
Assurance and Standards, the interview achieved to confirm the contents of supervisors’
monitoring and school evaluation but could not obtain their opinion for improvement of
education, nor measure their capacity.
(4) Unbalanced Information
There was a sufficient amount of data for certain survey items such as the number of enrolled
students, the number of schools, repetition rates and dropout rates, which could be obtained
from the educational statistics and reports. However, descriptions on “why it increased this
year” or “why it was decreased” were little. Besides, despite their importance in comprehending
the underlying structural problems of the education sector, there was a lack of information about
the curriculum, teacher training programs, educational administration and public finance and
capacity of the government. Past reports were full of general information, and there were not
many reports which included a specified analysis of these topics. As researches have been
conducted on capacity in some countries, it may be effective to refer to methods and
perspectives from these studies.
62
ANNEX
I. Survey Items and Indicators
1-1 Standard Research Items and Indicators for the Basic Education Sector Analysis
Main Grouping Sub Grouping Items and Indicators
Current situation of school age population
Population
1 1-1 Current situation and projection Projection of school age population
projection
Regional distribution of population density
Education system
Educational National development policy
Trend of improvement policy
2 development 2-1 Education development policy
on education sector
trend Education sector program
Education act/law
Trend of donor assistance Amount and contents of assistance and aid modality
Donor
3 3-1 Extent of adopting the global Donor coordination
assistance
aid framework Adoption of the aid framework
Net enrollment rate
(Primary/Secondary)
Enrollment trend
4 Access 4-1 Gross enrollment rate（Primary/Secondary）
Projection of enrollment rate
Net intake rate（Primary/Secondary）
Gross intake rate（Primary/Secondary）
Literacy,
5 non-formal 5-1 Literacy rate Adult literacy rate
education
Promotion rate by grade
Repetition rate by grade
Dropout rate by grade
Internal Transition rate
6 6-1 Quantitative internal efficiency
efficiency Cohort survival rate
Schooling years per graduate
Total number of pupils form whom educational
investment resulted in waste.
Repetition Rate by Group
Survival Rate by Group
Comparative analysis of access
7-1 Promotion Rate by Group
by group
Transition Rate by Group
7 Equity
Gender Parity Index
Special education for pupils
Education policy and current situation of special
7-2 with special needs and inclusive
education
education
Completion rate
Performance of the national examination
8-1 Situation of learning outcome
Performance of international student ability assessment
such as PISA, SACMEQ etc.
Pupils per class by region
Analysis of learning Pupils per class by group
8-2
environment Number of schools introducing shift system
Teaching hours
Procurement and distribution Analysis on procurement system of teaching material
8-3
8 Quality system of teaching material Efficiency of distribution system of teaching material
8-4 Definition of academic ability Definition of academic ability to achieve
Existence of national pupil/student ability standards
Contents of national pupil/student ability standards
Quality assurance system of Pupil/student ability assessment system
8-5
education How to put the results of pupil/student ability assessment
open to the public
School inspector system
Capacity of curriculum development agency
8-6 Curriculum
Curriculum updating
A-1
Main Grouping Sub Grouping Items and Indicators
8-7 Medium of instruction Medium of instruction (languages)
Number of Pupils Per Teacher (Regional distribution)
Teacher qualification and
9-1 Number of Pupils Per Teacher by Type (Regional
placement
distribution)
Teacher training System (pre-service and in-service)
Analysis on teacher education Appropriateness of teacher training curriculum
9 Teachers 9-2
system Appropriateness of proportion of material knowledge,
pedagogy, and educational psychology
9-3 Analysis on teacher salary Level of teacher salary
Analysis on teacher recruiting Teacher recruiting and removing agency
9-4
and management Regulations of recruiting and removing teachers
Situation of devolution among education administration
Analysis of structure and Capacity of each level
Educational 10-1
function of devolution Mechanism of devolution and financial distribution
10 administration
Situation of devolution process
system
Management of Ministry of
10-2 Management capacity of MoE
Education (MoE)
Percentage of government education budget and
Percentage of education sector
expenditure of education sector comparing to GDP
11-1 in the total government budget
Percentage of government education expenditure in total
and expenditure
government expenditure
Percentage of education
sub-sectors in the government Percentage of education sub-sectors in the government
11-2
education budget and education budget and expenditure
expenditure
Percentage of education sector
Percentage of education sector in the government
11-3 in the total government working
working budget and expenditure
budget
Analysis of recurrent budget Percentage of teacher salary in the education recurrent
11-4
and expenditure budget
Analysis of
11 educational Percentage of donor assistance
11-5 Percentage of donor assistance in MoE budget
finance in MoE budget
Analysis on flow and Flow of donor’s fund
11-6
management of donor’s fund Management system
Analysis of private spending on Percentage of spending of beneficiaries and households
11-7
education in education expenditure
Government education expenditure per pupil/student by
11-8 Analysis on unit cost
each education stage
Number of teachers to be needed in the mid-term period
Mid-term needs projection of
11-9
teachers and expenses Projection of expenditure needed in the mid-term period
Analysis of management system Mechanism of public finance management system in

11-10 of education budget and education sector
government expenditure Appropriateness of the existing mechanism
Public- - Comparison of enrollments by school type
Situation of public-private
12 private 12-1 Factor analysis on which groups go to which school
partnership (PPP)
partnerships types
(Source: JICA “Standard Research Item and Methodology of the Education Sector Analysis” (Draft as of
October 2011)
A-2
II. Itinerary of the Field Survey
No. Date Activities

1 25-Mar Sun Departure from Tokyo
2 26-Mar Mon Arrival to Nairobi
9:00 Meeting with JICA Kenya Office
13:00 Meeting with a local consultant
3 27-Mar Tue
15:00 Data Collection (Bureau of Statistics)
16:30 Meeting with JICA SMASE Expert
8:30 School visit (Ndururuno Secondary School)
4 28-Mar Wed
13:00 School visit (Kibera Primary School)
10:30 Meeting with DFID
5 29-Mar Thu
15:00 Meeting with UNICEF
10:30 Meeting with MOE: Department of Basic Education
11:00 Meeting with MOE: Department of Secondary Education
6 30-Mar Fri
15:00 Meeting with MOE: Department of Statistics (EMIS related
organization)
7 31-Mar Sat All day : School visit (Nakuru Girls Secondary School)
8 1-Apr Sun Documentation
8:30 Meeting with Kenya Institute of Education(KIE)
9 2-Apr Mon 11:00 Meeting with Kenya Education Staff Institute (KESI)
15:00 Meeting with Kenya National Examination Council（KNEC)
10:00 Meeting with Teacher's Service Commission (TSC)
10 3-Apr Tue 13:00 Meeting with MOE: Finance Department
15:00 Meeting with MOE: FS Department
13:00 Meeting with Provincial Education Office(PEO)
11 4-Apr Wed
15:00 Meeting with District Education Office (DEO)
8:30 Meeting with JICA SMASE Expert
11:00 Meeting with MOE: Department of Quality Assurance and
Standards
12 5-Apr Thu
12:00 Meeting with MOHEST: Dr. Kilemi
13:30 Meeting with World Bank
15:00 Meeting with JICA Kenya Office
13 6-Apr Fri Documentation
Departure from Nairobi
14 7-Apr Sat
Arrival to Addis Ababa (Ethiopia)
A-3
III. Collected Data
Chapter 3
3-1 Contents of the Reform Proposed by the Task Force
(1) Change the structure of education system (the 8-4-4 structure → the 2-6-3-3-3 structure) 114
(2) Change the school calendar (January to November → September to July)
(3) Revise curriculum and assessment (transition to competency-based curriculum and assessment)
(4) Improve access and equity
(5) Establish a quality assurance and standard agency, improve capacity building, hiring method,
environment for quality assurance and standards officers
(6) Change the national assessment system and the national qualification framework
(7) Change in financing (change FPE, FDSE grants, strengthen audit systems)
(8) Ministerial Re-organization (merge MOE and MOHEST, change functions of each Ministry)
(9) Re-organization of education boards (County Education Board (CEB), Sub-County Education
Officers (SCEO))
(10) Change the management bodies of primary and secondary schools
(11) Review human capacity development (training system, promotion system, disciplines,
evaluation system, etc.)
(12) Strengthen ICT
3-2 Performance Targets of the New Education Policy Framework (Abstract)

(a) Ensure access, equity and quality across all levels of Basic Education and training by
2020.
(b) Eliminate gender and regional disparities in Basic Education and training by 2017.
(c) Improve the quality of education and training so that Kenya‘s measurable learning outcomes in
literacy, numeracy, scientific and communication skills are in the upper quartile on recognised
international standardized tests by 2017.
(d) Equip schools to ensure that all primary and secondary schools meet minimum quality standards
of teaching and learning ….
(h) Require all Primary Schools to have a functioning ECDE section, with admission not subjected
to entry interviews or examinations by 2015.
…
114
8 years Primary, 4 years Secondary, 4 years University → 2 years Pre-primary, 6 years Primary, 3
years Junior secondary, 3 Senior Secondary and 3 years University.
A-4
Chapter 4
4-1 School Age Population (2009) (person)

National Rural Urban
Age
Male Female Total Male Female Total Male Female Total
4 618,171 599,641 1,217,812 449,533 434,267 883,800 168,638 165,374 334,012
5 600,714 579,082 1,179,796 437,634 420,286 857,920 163,080 158,796 321,876
6 590,310 577,107 1,167,417 439,149 425,335 864,484 151,161 151,772 302,933
7 541,370 528,350 1,069,720 396,641 384,812 781,453 144,729 143,538 288,267
8 561,120 553,788 1,114,908 420,732 410,703 831,435 140,388 143,085 283,473
9 539,155 526,720 1,065,875 396,040 382,099 778,139 143,115 144,621 287,736
10 612,711 585,911 1,198,622 462,383 436,772 899,155 150,328 149,139 299,467
11 418,412 424,178 842,590 307,303 308,411 615,714 111,109 115,767 226,876
12 567,671 532,930 1,100,601 426,985 391,720 818,705 140,686 141,210 281,896
13 487,708 475,577 963,285 359,022 342,464 701,486 128,686 133,113 261,799
14 478,811 450,946 929,757 359,182 327,942 687,124 119,629 123,004 242,633
15 459,517 436,317 895,834 344,713 313,970 658,683 114,804 122,347 237,151
16 434,776 421,622 856,398 323,323 296,841 620,164 111,453 124,781 236,234
17 423,615 400,013 823,628 304,443 269,903 574,346 119,172 130,110 249,282
(Source: Kenya National Bureau of Statistics, 2010)
4-2 ECDE Gross Enrollment Rate and Net Enrollment Rate by Gender (1999–2007) (%)
1999 2000 2001 2002 2003 2004 2005 2006 2007
Gross Boys 46.9 46.3 48.8 53.4 58.5 58.9 59.6 60.6 58.8
Enrollmen Girls 45.8 43.4 45.7 50.1 55.1 56.3 56.2 56.9 61.1
ECD t Rate Total 46.4 44.9 47.2 51.8 56.8 57.6 57.9 58.8 59.3
E Net Boys n/a n/a n/a n/a 31.3 33.4 32.9 33.6 43.1
Enrollmen Girls n/a n/a n/a n/a 30.7 32.4 25.6 33.6 41.1
t Rate Total n/a n/a n/a n/a 31 32.9 32.9 33.6 42.1
(Source: 1999-2002: MOE, 2005d, 2003-2007: MOE, 2008b)
4-3 Literacy Rate, 2009 (%)

2009
Adult Total 87.0*
(15+) Male 90.5*
% Female 83.5*
Youth Total 92.7*
(15-24) Male 91.9*
% Female 93.6*
(Source: UNESCO Institute for Statistics)
A-5
4-4 Primary Repetition Rate and Dropout Rate by Grade and Gender (2005) (%)115
Repetition Rate Dropout Rate
Boys Girls Total Boys Girls Total
Grade 1 6.76 6.23 6.50 9.88 8.31 9.12
Grade 2 6.08 5.58 5.84 6.59 5.13 5.88
Grade 3 5.82 5.15 5.49 - 0.92 0.48
Grade 4 6.16 5.58 5.88 4.25 3.77 4.02
Grade 5 5.51 5.95 5.72 - - 3.49
Grade 6 5.51 5.17 5.35 - - -
Grade 7 - - - - - -
Grade 8 - - - - - -
Total 5.83 5.63 6.02 - - -
(Source: World Data Bank. Education Statistics)
4-5 Primary Gender Parity Index (2001-2007) (Ratio)

1.20
1.00
0.80
0.60
0.40
0.20
0.00
2001 2002 2003 2004 2005 2006 2007
Coast 0.87 0.91 0.90 0.93 0.98 0.98 0.91
Central 1.03 1.05 1.01 1.00 0.99 1.00 0.96
Eastern 1.03 1.04 1.00 1.00 0.99 0.99 0.99
Nairobi 1.17 1.16 1.14 1.14 1.04 1.11 1.02
Rift Valley 0.99 1.00 0.98 0.97 0.97 0.98 0.96
Western 0.95 0.96 0.96 0.98 0.95 0.95 1.00
Ny anza 0.98 1.01 0.99 0.99 0.99 0.99 1.00
North Eastern 0.60 0.72 0.62 0.63 0.71 0.73 0.63
Total 1.00 1.02 0.99 1.00 0.98 1.00 0.94
(Source: MOE, 2005d, 2008b, 2009b)
115
Since there were data of only 2003 obtained from statistical data of Ministry of Education, the data
from World Data Bank are described as the most recent data.
A-6
4-6 Primary Survival Rate to Grade 5 by Gender and Province (2007) (%)
100.0
90.0
80.0
70.0
60.0
50.0
40.0
30.0
20.0
10.0
0.0
ley
za
bi
rn
st
n
l
rn
tra
ter
a
ro
ste
n
Co
ste
al
ya
n
ai
es
V
Ea
Ce
Ea
N
N
W
ft
Ri
th
or
N
Boys Girls
4-7 Enrollment in Special Needs Education Institutions by Category (2003 and 2007)
(person)
2003 2007
Special Primary 7,363 5,545 12,908 19,562 15,649 35,211
Special Secondary 3,822 294 4,116 5,571 4,457 10,028
Special Technical/Vocation 757 611 1,368 1,468 1,182 2,650
Primary Units/Integrated 31,276 41,601 72,877 66,614 93,258 159,872
Total 43,218 48,051 91,269 93,215 114,546 207,761
4-8 KCPE Score (Grade 8) by Subject (2008, 2009 and 2010) (%)
2008 2009 2010
Boys Girls Total Boys Girls Total Boys Girls Total
English 41.72 41.40 41.58 45.66 45.86 45.76 48.74 49.54 49.12
English
38.98 42.15 40.48 39.23 41.85 40.48 32.86 35.58 34.16
composition
Kiswahili 56.66 56.56 56.60 56.96 57.62 57.28 52.64 52.88 52.76
Kiswahili
44.45 47.74 46.00 51.58 56.00 53.68 38.46 42.16 40.24
composition
Mathematics 49.58 44.44 47.16 51.98 46.88 49.56 56.06 51.34 53.80
Science 58.00 52.16 55.24 62.82 56.70 59.92 63.30 55.66 59.64
Social Studies 63.92 58.48 61.35 65.62 58.87 62.42 67.73 61.88 64.93
Religion 61.56 58.90 60.41 62.51 60.10 61.60 60.70 59.40 60.07
(Source: Kenya National Examination Council, 2011a)
A-7
4-9 KCSE Score (Form 4) by Subject (2009 and 2010) (%)
2009 2010
English 39.33 39.18 39.26 38.61 39.26 38.90
Kiswahili 38.36 38.82 38.57 43.06 44.34 43.63
Mathematics 23.63 18.11 21.13 25.75 19.71 23.06
Maths Alt. B - - - 20.20 17.94 19.07
Biology 29.08 25.15 27.20 31.24 26.99 29.23
Physics 31.88 29.93 31.33 35.76 33.46 35.13
Chemistry 20.43 17.56 19.13 26.62 22.80 24.91
Biology for Blind 21.63 14.07 18.43 15.85 11.45 14.26
Science - - - 13.47 12.07 12.76
History 48.87 42.03 45.87 48.95 41.73 45.82
Geography 40.52 34.04 38.89 39.95 33.86 37.53
(Source: Kenya National Examination Council, 2011a)
4-10 Primary English Reading Level by 4-11 Primary Numeracy Level by Province
Province (2011) (2011)
(Source: UWEZO, 2011) (Source: UWEZO, 2011)
A-8
4-12 Score of SACMEQ II and III* (2000 and 2007) (Score)
SACMEQ II (2000) SACMEQ III (2007)
Countries
Reading Score Math Score Reading Score Math Score
Botswana 521 513 534.6 520.5
Kenya 546 563 543.1 557.0
Lesotho 451 447 467.9 476.9
Malawi 429 433 433.5 447.0
Mauritius 536 584 573.5 623.3
Mozambique 517 530 476.0 483.8
Namibia 449 431 496.9 471.0
Seychelles 582 554 575.1 550.7
South Africa 492 486 494.9 494.8
Swaziland 530 516 549.4 540.8
Tanzania 546 522 577.8 552.7
Uganda 482 506 478.7 481.9
Zambia 440 435 434.4 435.2
Zanzibar 478 478 536.8 489.9
Zimbabwe 507.7 519.8
All Countries 500 500 512.0 509.7
* The results have been organized using 500 for the average and 100 for the standard deviation of the
2000 SACMEQ for the consistency of indicators.
(Source: SACMEQ website)
4-13 Primary Textbook Prevalence Ratio (SACMEQ Survey) (2000 and 2007)
SACMEQ I (2000) SACMEQ II (2007)
Reading Textbook Reading Textbook Mathematics Textbook
Province
Prevalence Ratio Prevalence Ratio Prevalence Ratio
% SE % SE % SE
Central 23.9 4.33 25.2 5.44 23.4 5.50
Coast 23.8 5.44 23.6 6.19 18.3 5.20
Eastern 21.0 5.51 35.0 8.25 32.4 8.40
Nairobi 57.1 5.92 43.7 6.05 44.1 6.49
North Eastern 22.5 4.48 15.1 6.76 7.5 3.53
Nyanza 26.3 5.12 29.8 8.13 22.8 6.77
Rift Valley 27.2 5.63 24.5 5.00 21.2 4.72
Western 15.4 4.29 16.6 3.48 15.0 3.11
Kenya 24.3 2.14 26.8 2.63 23.4 2.48
(Source: SACMEQ, 2005)
A-9
4-14 Definition of Academic Ability to Achieve in Kenya
Objectives of Pre-Primary, Primary, and Secondary Education in Kenya
【Pre-Primary Education】
1. Provide education geared towards development of the child’s mental and physical
capabilities
2. Enable the child enjoy living and learning through play
3. Develop the child’s self-awareness, self-esteem and self-confidence
4. Enable the child develop understanding and appreciation of his/her culture and
environment
5. Foster the child’s exploratory skills, creativity, self-expression and discovery.
6. Identify the child with special needs and align him/her with existing services.
7. Enable the child build good habits and acquire acceptable values and behaviour for
effective living as an individual and member of society
8. Foster the spiritual and moral growth of the child
9. Improve the status of the child’s health, care and nutritional needs, and link him/her with
health promotion services.
10. Enrich the child’s experience to enable him/her cope better with primary school life.
11. Develop the child’s aesthetic and artistic skills.
【Primary Education】
1. Acquire, numeracy, creativity and communication skills
2. Enjoy learning and develop desire to continue learning
3. Develop ability for critical thinking and logical judgment
4. Appreciate and respect the dignity of work
5. Develop desirable social standards, moral and religious values
6. Develop into a self-disciplined, physically fit and healthy person
7. Develop aesthetic values and appreciate own and other people’s cultures
8. Develop awareness and appreciation of the environment
9. Develop awareness of and appreciation for other nations and international community
10. Instill respect and love for own country and the need for harmonious co-existence
11. Develop individual talents
12. Promote social responsibility and make proper use of leisure time
13. Develop awareness and appreciation of the role of technology in national development
【Secondary Education】
1. Acquire necessary knowledge, skills and attitudes for the development of the self and the
nation
2. Promote love for and loyalty to the nation
3. Promote harmonious co-existence among the peoples of Kenya
4. Develop mentally, socially, morally, physically and spiritually
5. Enhance understanding and respect for own and other people’s cultures and their place in
contemporary society
6. Enhance understanding and appreciation of inter-relationships among nations
7. Promote positive environmental and health practices
8. Build a firm foundation for further education and training
9. Develop ability for enquiry, critical thinking and rational judgment
10. Develop into a responsible and socially well adjusted person
11. Promote acceptance of and respect for all persons
12. Enhance enjoyment in learning
13. Identify individual talents and develop them
14. Build a foundation for technological and industrial development
15. Develop into a self-disciplined individual who appreciates work and manages time
properly.
(Source: MOE, 2002a, 2002b)
A-10
4-15 Numbers of Primary School Teachers by Qualification (2008 – 2011) (person)
2008 2009 2010 2011*
Male Female Total Male Female Total Male Female Total Male Female Total
Graduate 658 490 1,148 801 708 1,509 895 778 1,673 3,210 3,052 6,262
Approved 22,003 21,010 43,013 22,404 21,403 43,807 22,388 21,401 43,789 29,801 20,982 50,783
S1/ Diploma 7,054 7,456 14,510 7,133 7,486 14,619 7,109 7,407 14,516 6,439 7,744 14,183
P1 55,241 44,160 99,401 55,235 44,146 99,381 48,862 42,734 91,596 47,965 48,014 95,979
P2 6,802 5,185 11,987 6,801 5,184 11,985 3,847 4,007 7,854 3,209 3,851 7,060
Total 91,758 78,301 170,059 92,374 78,927 171,301 90,186 83,202 173,388 90,624 83,643 174,267
* Provisional (Source: 2008: UNESCO, 2010a, 2009-2011: Kenya National Bureau of Statistics, 2012)
4-16 Numbers of Secondary School Teachers by Qualification, 2008 – 2011 (person)

2008 2009 2010 2011*
Male Female Total Male Female Total Male Female Total Male Female Total
Graduate 22,131 12,502 34,633 24,009 15,501 39,510 24,989 15,475 40,464 27,815 16,832 44,647
A-11
Approved 5,135 2,397 7,532 5,329 2,397 7,726 5,297 2,345 7,642 4,677 2,511 7,188
S1/ Diploma 85 65 150 95 74 169 81 59 140 2,132 1,730 3,862
Trained
Technical 365 187 552 361 192 553 324 165 489 621 244 865
Contract Teacher - - - - - - 2,435 1,765 4,200 - - -
Total 27,716 15,151 42,867 29,794 18,164 47,958 33,126 19,809 52,935 35,245 21,317 56,562
Graduate 87 15 102 76 11 - 75 9 84 6 2 8
Untrained Diploma (Technical) 35 12 47 31 11 - 21 7 28 152 13 165
Total 122 27 149 107 22 129 96 16 112 158 15 173
Total 27,838 15,178 43,016 29,901 18,186 48,087 33,222 19,825 53,047 35,403 21,332 56,735
*Provisional (Source: 2008: UNESCO, 2010a, 2009-2011: Kenya National Bureau of Statistics, 2012)
4-17 Primary and Secondary Teachers’ Salary in Kenya (Monthly) (2011)(Ksh (JPY))
F G H J K L M N P Q R
13,750 15,093 17,208 22,322 26,323 30,472 35,275 40,835 63,782 77,527 94,235
1
(13,585) (14,912) (17,002) (22,054) (26,007) (30,106) (34,852) (40,345) (63,017) (76,597) (93,104)
13,851 15,440 17,593 22,768 27,032 31,272 36,542 42,301 66,719 81,811 99,442
2
(13.685) (15,255) (17,382) (22,495) (26,708) (30,897) (36,103) (41,793) (65,918) (80,829) (98,249)
13,952 15,787 18,363 23,660 28,450 32,872 37,809 43,767 69,656 86,095 104,649
3
(13,785) (15,598) (18,143) (23,376) (28,109) (32,478) (37,355) (43,242) (68,820) (85,062) (103,393)
14,157 16,134 19,133 24,552 29,868 35,275 39,076 45,233 72,593 90,379 109,856
4
(13,987) (15,940) (18,903) (24,257) (29,510) (34,852) (38,607) (44,690) (71,722) (89,294) (108,538)
16,828 20,289 25,895 31,996 42,877 49,636 75,530 98,947 120,270
5 - -
(16,626) (20,046) (25,584) (31,612) (42,362) (49,040) (74,624) (97,760) (118,827)
17,527 81,404
6 - - - - - - - - -
(17,317) (80,427)
(Source: TSC, 2011)
F. P2 teachers
G. P1 teachers
H. Trained Certificate Technical Teacher III, Untrained Diploma Technical Teacher, Approved Teacher IV
J. Graduate Untrained Teacher III, Approved/Ordinary Diploma Teacher III, Trained Diploma Technical III,
Trained Certificate Technical Teacher II
K. Graduate Teacher II, Approved/Ordinary Diploma Teacher II, Trained Certificate Technical Teacher I,
Trained Diploma Technical Teacher II, Assistant Lecturer, Graduate Untrained Teacher II
L. Graduate Teacher I, Trained Diploma Technical Teacher I, Lecturer, Approved/Ordinary Diploma Teacher I
M. Senior Graduate Teacher, Senior Approved Teacher, Ordinary Diploma Teacher, Senior Trained Diploma
Technical Teacher, Senior Lecturer
N. Senior Graduate Teacher, Senior Approved Teacher, Ordinary Diploma Teacher, Senior Trained Diploma
Technical Teacher, Senior Lecturer
P. Principal Graduate Teacher I, Principal Lecturer I, Principal Approved Teacher I
Q. Senior Principal Graduate Teacher, Senior Principal Lecturer, Senior Principal Approved Teacher
R. Chief Principal Graduate Teacher, Chief Principal Lecturer
A-12
4-18 Hardship Allowance (2009) (Ksh)
JOB Group Rate
F 3,055
G 3,354
H 3,741
J 4,960
K 5,449
L 6,118
M 7,395
N 7,953
P 9,274
Q 10,203
R 11,037
(Source: TSC, 2011)
4-19 Responsibility Allowance (2009) (Ksh)

Deputy
Streams Headteachers Senior Teacher
Headteacher
Single 750 200 150
Double 1,500 400 300
Triple 2,250 600 300
Four 3,000 800 300
Five 3,750 1,000 300
Six 4,500 1,200 300
Seven 5,250 1,400 300
Eight 6,000 1,600 300
Nine 6,750 1,800 300
Ten 7,500 2,000 300
(Source: TSC, 2011)
A-13
4-20 Teachers’ Salary Comparison of Low-income Countries (2009)
Teacher’s Salary as a percentage of GDP per capita
(Source: UNESCO, 2011)

Note: Number described next to the country indicates the targeted year. For example, -1 refers to 2008; -2
refer to 2007.
4–21 INSET Programmes for Primary Teachers

Programme Detail
Schools-based Teacher Development Aimed at strengthening the quality of Mathematics, English
(SbTD) and Science teaching. (2001- )
An extension of the first phase of SbTD, which includes
SbTD extension new subject specialism in guidance and counseling and
Kiswahili (2005 - )
The materials are complete and printing completed. It is
Development of SbTD specialist social
anticipated that this module will be implemented in
studies module
18,130 primary teachers in 2009/10.
A blended learning programme focusing on strengthening
management and leadership capacity and pedagogic
School Empowerment Programme (SEP) effectiveness in all public primary schools using print and
electronic media and local face-to-face support meetings.
(2006 - )
ICT training in Primary Teacher Training
Supported by USAID. (2008 - )
Colleges
Strengthening of Mathematics and
Science in Primary Education Supported by JICA (2009 - )
(SMASE)
Education for Marginalized Children in
Supported by USAID. (2005 - )
Kenya (EMACK)
East Africa Quality Education Learning Early reading (grades 1-3) initiative that is being piloted in
(EAQEL) Kwale and Kinango in Coast Province.
Child Friendly Schools (CFS) Implemented through the Quality Assurance and Standards
Programme Directorate supported by UNICEF.
A-14
Chapter 5
5-1 Functions of Ministry of Education, NEB, CEB, and SCEB (Proposed)
Institution Functions
Regulation
Coordination
Ministry of Education*
Policy Planning
Curriculum supervision
Monitor and evaluate implementation and effectiveness of all education
policies and plans and produce periodic progress reports.
National Education Advise the Cabinet Secretary and the relevant ministries on policy matters on
Board (NEB) education, training and research.
Collaborate with the proposed ESQAC commission/authority and
stakeholders to uphold standards in education and training, etc.
Oversee the operationalization of pre-primary education, village polytechnics,
home craft centres and child care facilities.
Plan, promote, develop, and coordinate education, training and research in the
county
Interpret national policies in education based on the county needs.
Initiate proposals for policy reforms.
Develop and coordinate education plan at the county level.
County Education Collaborate with appropriate authorities in the management of basic schools
Board (CEB) Coordinate with National Education Board.
Register and maintain a data bank of all education and training institutions in
the county.
Monitor curriculum implementation
Monitor the conduct of examinations and assessments
Collaborate with TSC on teacher management.
Put measures in place to ensure all children and youth of school going age
attend and stay in school to complete Basic Education, etc.
Be a link between the CEB and the Sub County in regards to education
Sub-County Education matters.
Board (SCEB) Co-ordinate co-curricular activities at the Sub county/constituency.
Support BOMs, etc.
(Source: Developed by the study team in reference to MOE, 2012a, Education Bill 2012)
* Establish the position of Director General of Education (DGE) (new title of Education Secretary)
responsible for the implementation of education across the sector, and rationalise and refocus the
Semi-Autonomous Governments Agencies (SAGAs) responsible for the development and management of
various aspects of Education and Training. (MOE, 2012b)
A-15
5-2 Expenditure for the Ministries of Education (2006/07 - 2011/12) (million Ksh)
2006/07 2007/08 2008/09* 2009/10* 2010/11+ 2011/12+
Recurrent Expenditure
Ministry of Education
General
Administration & 71,277.1 78,338.9 81,841.7 91,606.7 103,875.5 117,408.8
Planning 1
Pre-Primary 28.7 28.9 182.4 186.3 393.4 383.8
Primary 6,581.8 7,871.0 7,298.8 7,970.5 9,861.7 9,903.8
Secondary 14,322.9 8,009.7 14,622.4 14,455.5 17,840.5 19,109.1
Special Education 450.4 441.1 506.3 279.3 551.4 444.2
Teacher Education 206.7 187.7 210.6 197.4 197.1 215.2
Adult Education 40.0 554.0 739.8 576.7 956.6 1,047.3
Quality assurance and
147.4 149.4 171.1 160.6 253.2 270.0
standards
Policy and planning 241.1 165.0 161.4 167.2 182.0 253.0
Subtotal 93,296.1 95,745.7 105,734.5 115,600.3 134,111.4 149,035.2
Ministry of Higher Education, Science and Technology
Subtotal 16,901.6 15,919.8 20,356.2 23,244.7 43,931.7 41,095.2
Recurrent, Sub-Total 110,197.7 111,665.5 126,090.7 138,845.0 178,043.1 190,130.4
Development Expenditure
Ministry of Education
General 390.0 471.8 626.6 8,382.1 4,219.4 4,234.3
Administration &
Planning
Pre-Primary - - 23.5 17.0 52.1 25.5
Primary 5,541.8 5,453.5 7,284.7 1,210.4 2,524.8 1,603.7
Secondary 844.8 165.0 750.0 823.8 2,876.8 1,020.8
Special Education - - - - - 10.0
Teacher Education 50.0 19.0 180.0 50.0 99.4 93.2
Adult Education 5.8 20.0 20.0 268.0
Quality assurance and - - - 57.9 94.6 187.3
standards
Policy and planning 1,009.0 2,985.6 150.5 91.7 26.7 387.0
Subtotal 7,835.6 9,094.9 9,021.1 10,652.9 9,913.8 7,829.8
Ministry of Higher Education, Science and Technology
Subtotal 733.5 2,108.9 4,767.0 4,908.0 10,139.0 15,319.5
Development, Sub-Total 8,569.1 11,203.8 13,788.1 15,560.9 20,052.8 23,149.3
Total 118,766.8 122,869.3 139,879.8 154,405.9 198,095.9 213,279.7
(Source: 2006/07-2010/11: Kenya National Bureau of Statistics, 2011, 2011/12: Kenya National Bureau
of Statistics, 2012)
* Provisional, + Budget Estimates including supplementaries
1: Includes salaries for teachers and all other education personnel
A-16
5-3 Share of Subsectors in Expenditure for Ministry of Education (2006/07-2011/12)
(million Ksh)
160,000 Million KSh

Policy and planning
140,000
Quality assurance and
standards
120,000
Adult Education
100,000
Teacher Education
80,000 Special Education
60,000
Secondary
40,000 Primary
20,000 Pre-Primary
0 General Administration &

2006/07 2007/08 2008/09* 2009/10* 2010/11+ 2011/12+ Planning 1
(Source: Kenya National Bureau of Statistics, 2011, 2012)

*1: Includes salaries for teachers and all other education personnel
5-4 Pooled Funds Disbursement
(Source: WB, 2006)
A-17
5-5 The Budget Cycle in Kenya
(Source: Cambridge Education, Mokoro & OPM, 2010)
A-18
5-6 Current (under 2003 programme) and Proposed Grants for FPE and FDSE
(Per Capita /Ksh)
FPE FDSE
Proposed Proposed
Item Current Item Current
by TF by TF
SIMBA (School Instructional Materials Bank Account)
– Text books 360 952 – Text books, Exercise Books 2,185 2,622
– Exercise Books 210 350 – Laboratory (infrastructure)
728 1,000
Equipment
– Pens and pencils 15 50 – Teaching and learning
300 360
materials
– Teachers Guides and 55 182 – ICT Infrastructure and
Reference materials, dusters, materials － 500
white boards and registers
– Charts and wall maps 10 -- – Reference materials
(Kamusi, Dictionary, Atlas 70 84
etc.)
– ICT Infrastructure and -- 500 – Teachers guides
113 136
materials
– Environment and sanitation -- 250 – Chalk, dusters and registers
5 60
(stationery)
– Science and applied -- 100 – Assessments and
－ 800
technology Examinations
– Assessment and -- 500 – Repairs, Maintenance and
199 239
Examinations Improvement
– Sub-Total 650 2,884 – Local Transport and Travel 800 960
GPA (General Purpose Account) – Administration Costs 400 400
– Support Staff Wages 112 1,000 – Capacity Building of BOM -- 100
– Repairs, Maintenance and 127 200 – Electricity, Water
500 600
Improvement
– Lunch -- 4,500 – Environment and Sanitation -- 250
– Quality Assurance 29 60 – Science and Technology -- 200
– Local Travel and Transport 21 100 – Lunch Component -- 5,799
– Activity 43 100 – Activity Fees 500 600
– Electricity, Water and 10 200 – Personal Emoluments
3,965 4,758
Conservancy
– Telephone/Box Rental and 22 50 – Student Health and Safety
300 360
Postage
– Sanitary Pads (age 10 years) -- 585 – Sanitary Pads for Girls -- 585
– Capacity Building of BOM 6 60
– Sub-Total 370 6,855
– Total 1,020 9,739 10,265 14,614
A-19
5-7 Benefit Incidence of Public Spending on Education (2005-2008) (%)
Primary Secondary Tertiary
Poorest Quintile 24.7 9.5 1.9
Quintile 2 25.2 15.9 2.0
Quintile 3 21.6 21.9 7.0
Quintile 4 18.2 25.5 19.1
Richest Quintile 10.2 27.2 70.0
(Source: MOE, 2012a, Original Source: Demery and Gaddis, 2009 based on the KIHBS dataset of
2005/06.)
A-20
Chapter 6
6-1 KESSP Financing (Project total) (USD)
Type of Appraisal Estimate Actual/Latest Estimate Percentage Of
Source of Funding
Cofinancing (million USD) (million USD) Appraisal
Gov. of Kenya Pooled 616.00 410.86 66.7
IDA Pooled 80.00 56.65 70.8
Other Multilateral & Pooled 388.00 236.36 75.0
Bilateral Agencies
FTI-Catalytic Fund Pooled 73.00 121.00 165.8
Financing Gap 197.30 529.43 193.5
Total 1,354.30 1,354.30
(Source: WB, 2011)
6-2 Indicators and Achievement of KESSP Objectives (as of December 2010)

Objective Indicator (excerpt) Actual Value Achieved (excerpt)
(Date to be achieved: 12/31/2010)
1. Ensuring equity of NER 100% (at least 96%) NER: 92.9% (MoE), 83%(Census) (2009)
access to basic (Baseline: 83%) → Rated as: Unsatisfactory
education North Eastern NER: 40% North Eastern NER: 32%(Census), 53.4%
(Baseline: 23% (MoE), 49.5% (MoE)→ Moderately satisfactory
(Census)) GPI: 0.96 (MoE), 1.031 (Census)
Gender Parity Index: GPI＝1 →Satisfactory (Consistent with the
(Baseline: 0.988 (MoE), 1.03 decision rule of giving greater weight to
(Census)) Census)
Primary Completion Rate (PCR): PCR: 83% → Unsatisfactory
at least 92%
(Baseline: 80%)
2. Enhancing quality Improved Scores in Learning NA (Progress achieved toward attainment
and learning Achievement (NASLA) of higher learning achievement is not
achievement rated due to lack of data.)
3. Providing Increase the Secondary School 54% (2005) → 67%(2009)
opportunities for Transition Rate (the percentage of → Satisfactory
further education youth who passed the KCPE
and training examination who enrolled in
(TVET) secondary school the following
year): 70%
4. Strengthening Primary Education's share of the Primary’s share of recurrent education
education sector MoE recurrent budget at least expenditure: 48.7%,
management 55% (baseline) Non-salary expenditure: dropped to 11%
Sustain primary non-salary → Unsatisfactory
recurrent expenditure at 15% of
total primary recurrent
expenditure
(Source: WB, 2011)
* KESSP performance indicators use different data sources, including Kenya Integrated Household
Budget Survey (KIHBS) (2005) and Demographic and Health Survey (DHS) (2008) (Shown as “Census”
here), since there was general agreement that the accuracy of the EMIS data has been questioned
throughout the KESSP implementation period and survey and census data have greater credibility.
A-21
IV. References
Cambridge Education, Mokoro & OPM (2010) Mid-Term Evaluation of the EFA Fast Track
Initiative. Cambridge Education, Mokoro and OPM, February 2010.
DFID (2010) Ethiopia Education Public Expenditure Review.
EDCG (2005) Kenya Education Development Partners Coordination Group (EDCG). Terms of
Reference.
The Constitution of Kenya (2010) Revised Edition 2010
Kenya Institute of Education (2011a) Report on Summative Evaluation of the Primary School
Education Curriculum.
Kenya Institute of Education (2011b) Report on Summative Evaluation of the Secondary School
Education Curriculum.
Kenya Institute of Education (2012) Primary Teacher Education –Overview-.
Kenya National Bureau of Statistics (2010) 2009 Kenya Population and Housing Census. Volume I C.
Population Distribution by Age, Sex and Administrative Units.
Kenya National Bureau of Statistics (2011) Economic Survey 2011.
Kenya National Bureau of Statistics (2012) Economic Survey 2012.
Kenya National Examinations Council (2011a) The Year 2010 KCPE Examination Report with
Question papers & Answers to the Objective Questions.
Kenya National Examinations Council (2011b) The Year 2010 KCSE Examination Report with
Question papers & Answers to the Objective Questions.
Ministry of Education (2002a) Primary Education Syllabus. Volume two. Kenya Institute of
Education
Ministry of Education (2002b) Secondary Education Syllabus. Volume two. Kenya Institute of
Education
Ministry of Education (2005a) Kenya Education Sector Support Programme, 2005-2010. (KESSP).
Ministry of Education (2005b) Education Sector Report, 2005.
Ministry of Education (2005c) Sessional Paper No.1 as of 2005: A Policy Framework for Education,
Training and Research.
Ministry of Education (2005d) Education Statistical Booklet 1999-2004.
Ministry of Education (2008a) Education for Sustainable Development. Implementation Strategy.
Ministry of Education (2008b) Education Statistical Booklet 2003-2007.
Ministry of Education (2009a) Kenya Education Sector Support Programme 2010-2015, Delivering
Quality Education and Training for Vision 2030. October, 2009, 1st Draft.
Ministry of Education (2009b) Education Facts and Figures (2002-2008).
Ministry of Education (2012a) Towards a Globally Competitive Quality Education for Sustainable
Development. Report of the Task Force.
Ministry of Education (2012b) A Policy Framework for Education. Aligning Education and Training
to the Constitution of Kenya (2010) and Kenya Vision 2030 and beyond. Draft 11th May, 2012.
A-22
Ministry of Planning and National Development (2003) Economic Recovery Strategy for Wealth and
employment Creation 2003 – 2007.
Ministry of State for Planning (2008) Vision 2030.
National Coordinating Agency for Population and Development (2011) STATE OF KENYA
POPULATION 2011
SACMEQ (2005) The SACMEQ II Project in Kenya: A Study of the Conditions of Schooling and the
Quality of Education. Kenya Working Report.
TSC (2011) Implementation of the Third Phase of the Negotiated Teachers Salaries. June 2011.
TSC (2012) Issues and Challenges on Recruitment and Management of Teachers.
UWEZO (2011) Are Our Children Learning?. Annual Learning Assessment Report. Kenya 2011.
UNESCO (2010a) National Education Support Strategy (UNESS) for the Republic of Kenya
2010-2011.
UNESCO (2010b) World Data on Education. 2010/11.
UNESCO (2011) GLOBAL EDUCATION DIGEST 2011.
University of Sussex (2011). Learning to Teach Reading and Mathematics and Influences on
Practice: A Study of Teacher Education in Kenya. Teacher Preparation and Continuing
Professional Development in Africa (TPA). Country Report 2011.
World Bank (2003) Project Appraisal Document on Free Primary Education.
World Bank (2004a) Strengthening the Foundation of Education and Training in Kenya.
Opportunities and Challenges in Primary and General Secondary Education.
World Bank (2004b) Education for All (EFA) - Fast Track Initiative Progress Report.
World Bank (2006) Project Appraisal Document on KESSP.
World Bank (2011) Implementation Completion and Results Report. EDUCATION SECTOR
SUPPORT PROJECT.
World Bank Institute (2009) The Capacity Development Results Framework, A strategic and
results-oriented approach to learning for capacity development.
<Sources written in Japanese>

JICA (2011) Report on Preparatory Survey on the Project for the Upgrading and Refurbishment of
the Centre for Mathematics, Science, Technology Education in Africa (CEMASTEA) Training
Facilities in the Republic of Kenya (Africa Risuka, Gijutsu Kyoiku Center Kakuju Keikaku
Junbi Chosa Hokokusho).
Ministry of Foreign Affairs of Japan Website (http://www.mofa.go.jp/mofaj/)
Ministry of Foreign Affairs of Japan (2010) ODA Data book by region [12 Kenya] (Kunibetsu Data
Book)
Tsuda (2010) Africa Report No.50. Kenya, after "post-election violence in 2007" - Establishment of
the interim constitution framework of and its issues (“2007-nen Senkyo-go Boryoku” go no
Kenya: Zantei Kenpo Wakugumi no Seiritsu to Kadai).
A-23

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BASIC EDUCATION SECTOR

JAPAN INTERNATIONAL COOPERATION AGENCY (JICA)

JAPAN INTERNATIONAL COOPERATION AGENCY (JICA)

ACE: Adult and Continuing Education

Chapter 2: Political and Socio-economic Situation in Kenya

Chapter 3: Educational Policies and Reforms

Chapter 4: Status and Challenges of Basic Education Sector Development

[Learning Environment] The national average of pupil-classroom ratio (PCR) of primary

[Textbook Distribution System] The government of Kenya has constructed a system to

Chapter 5: Public Finance and Administration in the Education Sector

Chapter 6: Trends in Donor Assistance

The Education Development Partners Coordination Group (EDCG), a framework of donor

Chapter 7: Results of Analysis

1.1 BACKGROUND ........................................................................................................................... 1

CHAPTER 2: POLITICAL AND SOCIO-ECONOMIC SITUATION IN KENYA ........................... 4

2.1 POLITICAL SITUATION ................................................................................................................ 4

CHAPTER 3: EDUCATIONAL POLICIES AND REFORMS ........................................................... 6

3.1 NEW CONSTITUTION AND NATIONAL DEVELOPMENT PLANS ........................................................ 6

CHAPTER 4: STATUS AND CHALLENGES OF BASIC EDUCATION SECTOR

4.1 ACCESS ................................................................................................................................... 12

CHAPTER 5: PUBLIC FINANCE AND ADMINISTRATION IN THE EDUCATION SECTOR .. 40

5.1 PUBLIC ADMINISTRATION ........................................................................................................ 40

CHAPTER 6: TRENDS IN DONOR ASSISTANCE ......................................................................... 52

6.1 STRUCTURE OF DONOR COORDINATION .................................................................................... 52

CHAPTER 7: RESULTS OF ANALYSIS .......................................................................................... 55

7.1 TOP PRIORITIES IN THE BASIC EDUCATION SECTOR ................................................................... 55

1.2 Objectives of the Study

1.3 Basic Approaches of the Study

The Study was conducted with the following basic approaches:

1.5 Major Steps and Schedule

February‐April 2012: Formulation of Inception Report

Table 1-1：Team Members of the Study and the Countries in Charge

2.1 Political Situation

2.2 Socio-economic Situation

The socioeconomic indicators of Kenya are shown in the following.

1) Country Name: Republic of Kenya

Kenya has 8 (eight) provinces with 290 districts.

Table 2-1: Population by Province (2009)

3.1 New Constitution and National Development Plans

3.1.1 New Constitution

3.1.2 Vision 2030

3.2 Recent Trend of Educational Reform

3.3 Education System

（Current Structure） Basic Education Higher Education

3.4 Education Policy

(1) Enhancing Access, Equity, Quality and Relevance

3.5 Kenya Education Sector Support Programme (KESSP)

3.6 Education Act

3.7 Supervisory Authority

Assistant Minister Assistant Minister

Note: Dir. = Directorate

4.1.1 School Age Population

Table 4-1: Transition of School Age Population (2000-2010) (persons)

4.1.2 Number of Schools and Enrollment19

Table 4-2: Number of ECDE, Primary and Secondary Schools by Ownership

4.1.4 Enrollment Trend of Primary Education

4.1.5 Enrollment Trend of Secondary Education

4.2 Internal Efficiency (Quantitative Internal Efficiency)32

(1) Cohort Survival Rates